The Geopolitics of Climate Change

The Geopolitics of
Climate Change
The Geopolitics of Climate Change
FOI
Swedish Defence Research Agency
Defence Analysis
SE-164 90 Stockholm
Phone: +46 8 55 50 30 00
Fax:
+46 8 55 50 31 00
www.foi.se
PETER HALDÉN
FOI, Swedish Defence Research Agency, is a mainly assignment-funded agency under the Ministry of Defence. The core activities are
research, method and technology development, as well as studies conducted in the interests of Swedish defence and the safety and
security of society. The organisation employs approximately 1000 personnel of whom about 800 are scientists. This makes FOI Sweden’s
largest research institute. FOI gives its customers access to leading-edge expertise in a large number of fields such as security policy
studies, defence and security related analyses, the assessment of various types of threat, systems for control and management of crises,
protection against and management of hazardous substances, IT security and the potential offered by new sensors.
Peter Haldén
FOI-R--2377--SE
ISSN 1650-1942
User report
December 2007
Defence Analysis
Peter Haldén
The Geopolitics of Climate
Change
Challenges to the International System
FOI-R--2377--SE
Titel
Klimatförändringarnas geopolitik: Utmaningar
mot det internationella systemet
Title
The Geopolitics of Climate Change:
Challenges to the International System
Rapportnr/Report no
FOI-R--2377--SE
Rapporttyp
Report Type
Användarrapport
User report
Månad/Month
December
Utgivningsår/Year
2007
Antal sidor/Pages
171 p
ISSN
ISSN 1650-1942
Kund/Customer
Forskningsområde
Programme area
1. Analys av säkerhet och sårbarhet
1. Security, safety and vulnerability analysis
Delområde
Subcategory
13 Stöd tillsäkerhet och beredskap
13 Support to Security, Safety and
preparedness
Projektnr/Project no
B10024
Godkänd av/Approved by
E. Anders Eriksson
Picture front cover
Stockxpert
FOI, Totalförsvarets Forskningsinstitut
Avdelningen för Försvarsanalys
164 90 Stockholm
FOI, Swedish Defence Research Agency
SE-164 90 Stockholm
Sweden
FOI-R--2377--SE
Sammanfattning
Denna rapport analyserar konsekvenserna som klimatförändringarna och den
globala uppvärmningen kan få för internationell politik i allmänhet och för
internationell säkerhet i synnerhet. Rapporten fokuserar på om, och i så fall hur,
klimatförändringarna påverkar de grundläggande villkoren för internationell
säkerhet. Med denna utgångspunkt konstaterar rapporten att initialt sett kommer
klimatförändringarnas effekter betingas av existerande ekonomiska, politiska och
sociala strukturer i olika delar av världen. Organiserat våldsanvändande är en
troligare konsekvens i regioner med svaga stater och oroliga mellanstatliga
relationer. På kort- och medellång sikt kommer dock klimatförändringarna
sannolikt inte att förändra de strukturer som sätter ramarna för internationell
säkerhet.
Beroende på graden av kommande klimatförändringar kan dessa strukturer
komma att förändras på lång sikt. Dessa förändringar är sannolikt avhängiga av
de andrahandseffekter som klimatförändringarna kan få på världsekonomin.
Klimatförändringarna kommer sannolikt inte leda till en ökning av konflikter på
kort- och medellång sikt, men på lång sikt kan oförminskade klimatförändringar
få allvariga konsekvenser för internationell säkerhet.
Rapporten påpekar att de nödvändiga åtgärderna för att minska utsläpp och
anpassa samhällen till klimatförändringar kan få konsekvenser för internationell
politik. Detta beror på de förändringar i sociala och politiska system som
åtgärderna kan medföra.
Nyckelord: klimatförändringar, internationell säkerhet, miljösäkerhet,
systemteori, Luhmann
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Summary
This report analyses the consequences of climate change and global warming for
international politics in general and international security in particular. The
report focuses on whether and in what way climate change may alter the
conditions of international security. From this perspective, the initial effects of
climate change will vary according to existing economic, political and social
structures in different world regions. Organised violence is more likely in regions
with weak states and conflictual inter-state dynamics than in those characterised
by co-operative relations. In the short- to medium term, climate change is
unlikely to alter the constitutive structures of international security.
However, depending on the severity of climate change, these conditions may
change over the long term. Such changes will probably depend on the secondary
effects that change has on the world and regional economies. Climate change is
unlikely to lead to an increase in conflicts in the short- to medium term, but a
long-term development marked by unmitigated climate change could very well
have serious consequences for international security.
The report argues that, although necessary, mitigation and adaptation measures
may have consequences for international politics. These are due to the changes in
social and political systems that they entail.
Keywords: climate change, international security, environmental security,
systems theory, Luhmann
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Preface
When Dr. Annika Carlsson-Kanyama, the initiator of what today is the wellestablished research programme Climatools, approached me in early 2006 I had
spent few academic thoughts on climate change. Annika was looking for
international relations and security policy perspectives on the issue of climate
change, something she found woefully lacking in the international climate debate
of the day. In our following conversation I recalled, from my own dissertational
work several years ago, some of the the old school geopolitical theoreticians
from the first half of the 20th century. They actually emphasized climate factors
in a way that perhaps could be fruitful in a context of global climate change
analysis.
However, the basic climate argument of geopolitical theory was actually an
argument of stability: the climate, together with geography and topography, sets
much of the scene for any country’s economic, and thus military, power base.
Climate as well as geography are phenomena, it was argued, that do not change
change that much. Or do they? The view today, more than fifty years later, is of
course very different. What struck me as an utterly interesting research venue
was therefore the exploration of climate change as a factor in the geopolitical,
international relations and security policy realm, and I immediately began
designing a research project in this spirit. It was finalized in and e-mailed to
Annika from a hot Canberra hotel room, on a research trip for other purposes to
Australia. Ironically, the climate change debate in that country – especially in
terms of drought - then came up as one of the real important issues in the
Australian general elections of 2007.
Late in 2006, the Climatools programme and my project proposal were approved,
but my work load then made it impossible for me to continue working actively in
the project. Luckily, a talented and recently recruited researcher, dr. Peter
Haldén, was able to take up the torch and almost the whole of this report is his
work. Besides designing the initial project proposal, my only contribution to the
text is the part on geopolitical theory in section 2.3. It is my hope that Peter’s
very thorough and ground-breaking research gets the attention it merits.
Dr. Mike Winnerstig
Dep. Research Director
FOI Defence Analysis
Swedish Defence Research Agency
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Author’s Preface
Because of the rapid growth in the body of available knowledge, writing about
climate change today is more difficult than shooting at a moving target. In fact it
is more like analysing a constantly mutating entity. From the perspective of the
scientific community this is a good thing since our knowledge is constantly
growing. However, from the perspective of the individual researcher it is rather
problematic since it is well nigh impossible to keep up with the existing state of
research. As this report was being finalised, the latest World Energy Outlook was
published by the International Energy Agency (IEA). This IEA report states that
in light of China’s and India’s currently high and growing energy demands and
fossil fuel use, the world is moving closer to an inevitable increase in global
mean temperatures of 3ºC above pre-industrial levels. To check global warming
at these already high levels, ‘urgent action’ would be required.1 If the IEA is
correct, then the present report would already have to be counted among the
‘conservative’ estimates of climate change. Almost all prefaces to academic and
policy-oriented works tend to stress the importance of their research field and
argue that further research is necessary. Clearly, in this case advocating the need
for further research seems to be very close to ‘common sense’.
This is one of the reports emanating from the research programme Climatools
which is a joint undertaking by the Swedish Defence Research Agency, the
Royal Institute of Technology (KTH) of Sweden and the Universities of Umeå
and Uppsala. The programme is financed by the Swedish Environmental
Protection Agency (Naturvårdsverket) and its purpose is to undertake a number
of studies in order to create tools that can assist the efforts of Swedish society in
adapting to climate change. This report has a dual purpose, firstly as a standalone report and secondly to serve as a global context for the other studies within
the programme, which have a much more exclusively Swedish focus. In its
capacity as a stand-alone report, this document has the ambition of being suitable
for use by a European and international readership of scholars and policymakers.
In its capacity as a first study in a series of many with a more specifically
Swedish focus, an important task of this report is to identify bifurcation points
that could be used as a basis to produce scenario-like narratives of climate
change and security politics. Bifurcation points are key issues from which,
hypothetically, different developments could follow. This is particularly relevant
in Section 3, the regional analyses of climate change, but it also features in
1
See IEA 2007:50
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Section 4, which deals with thematic issues. Some of these bifurcation points
form the basis of the narrative scenario construction undertaken by the
forthcoming Climatools report 3: Scenarios as a tool for assessment of
vulnerabilities and strategies written by Karl-Henrik Dreborg and Henrik
Carlsen.
A number of people have been most helpful with comments, criticism and
suggestions to the report. Therefore gratitude is due to the following people:
Mattias Lundblad of the Swedish Environmental Protection Agency, Oskar
Wallgren of the Swedish Environment Agency, Mikkel Vedby Rasmussen and
Bertel Heurlin of the Danish Institute of Military Studies, Major-General
Michael Moore of the Swedish Armed Forces, Helena Tagesson of the
University of Växjö, Sven Ove Hansson of the Royal Institute of Technology,
Örjan Bodin at the Swedish Centre of Resilience Studies and last, but certainly
not least, Annika Carlsson-Kanyama, Oskar Parmhed, Karl-Henrik Dreborg and
Henrik Carlsen at the Swedish Defence Research Agency. As always, any and all
mistakes and flaws are the author’s own.
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Table of Contents
Summary in Swedish/ Sammanfattning på svenska
13
1
Introduction
21
1.1
Setting the Scene ............................................................................. 21
1.1.1
1.1.2
1.1.3
1.1.4
The Theoretical Framework of the Study ......................................... 23
Further Research.............................................................................. 24
Guidelines for Readers..................................................................... 25
Climate Change as an Intellectual Challenge .................................. 25
1.2
The Understanding of Security in the Report ................................... 26
1.3
How Does the Climate Affect Politics and Societies? ...................... 27
1.3.1
1.3.2
The Climate is not a Cause – It is a Condition ................................. 27
Climate Change will not Transform Political Systems
– Political Systems will Interpret Climate Change ............................ 28
1.4
Summary .......................................................................................... 36
2
Theoretical Framework
2.1
Introduction ....................................................................................... 38
2.2
Scenarios of Climate Change........................................................... 39
2.2.1
2.2.2
2.2.3
2.2.4
Non-linear Effects of Climate Change .............................................. 41
Deterioration of the West Antarctic Ice Sheet (WAIS)...................... 42
Thawing of Permafrost and Tundra .................................................. 42
Weakening of the North Atlantic Current (thermohaline
circulation) ........................................................................................ 43
2.3
Geopolitics and Political Geography................................................. 43
2.3.1
Environmental Security and the Effects of Climate Change ............ 48
2.4
A Region-Based Approach ............................................................... 51
2.5
Paths to Violent Conflict under Conditions of Climate Change ........ 55
2.5.1
2.5.2
Loss of State Interaction Capacity due to Climate Change.............. 55
The Climate is not a Conflict Protagonist but Protagonists may
exploit the Climate ............................................................................ 56
Non-Climate Factors in the Analyses ............................................... 60
2.5.3
38
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3
Regional Analyses
62
3.1
Introduction....................................................................................... 62
3.2
The Security Regions of the World and Climate Change ................ 62
3.2.1
3.2.2
3.2.3
3.2.4
3.2.5
Sub-Saharan Africa .......................................................................... 62
The Middle Eastern Regional Security Complex.............................. 72
The Asian Supercomplex ................................................................. 84
The South American Regional Security Complex ............................ 94
The West European Great Power Subcomplex ............................. 101
4
Thematic Issues of the Interface between Climate Change
and International Security
106
4.1
Strategies of Adaptation and Conflicts ........................................... 106
4.1.1
4.1.2
4.1.3
Introduction..................................................................................... 106
Adaptation Strategies and International Conflict ............................ 107
Adaptation strategies and domestic conflict................................... 108
4.2
The Strategic Importance of the Arctic........................................... 110
4.2.1
4.2.2
4.2.3
4.2.4
Introduction..................................................................................... 110
Exploitation of the Sea Bed ............................................................ 115
Thawing Permafrost – an Issue of Strategic Concern ................... 118
Conclusions .................................................................................... 120
4.3
Climate Change, Refugees and Migrants ...................................... 120
4.3.1
4.3.2
4.3.3
4.3.4
4.3.5
4.3.6
Introduction..................................................................................... 120
Conceptual Issues.......................................................................... 121
Do Environmental Degradation and Climate Change Cause
Migrations? ..................................................................................... 123
Do Migrants and Refugees Cause or Contribute to Conflict? ........ 125
Migration, Slums, Destabilisation and Conflict ............................... 128
Conclusions .................................................................................... 131
4.4
International Interventions in a World with a Changed Climate .... 132
4.4.1
4.4.2
4.4.3
The Difficulties of Intervention ........................................................ 134
The Stabilising Potential of Regional Powers ................................ 135
Negative Consequences of Destabilisation of Regional Powers ... 136
4.5
The World Economy and Resource Wars...................................... 137
4.6
Climate Change and the International System............................... 140
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5
Conclusions
144
5.1
5.2
5.3
Security Risks of Treating Climate Change as a Security Risk......147
Decreased Interaction Capacity .....................................................149
The Current Window of Opportunity ...............................................155
6
References
157
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12
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Summary in Swedish/
Sammanfattning på svenska
Inledning
Rapporten The Geopolitics of Climate Change (”Klimatförändringarnas
geopolitik”) behandlar de konsekvenser som klimatförändringarna kommer att
kunna få för internationell säkerhetspolitik i framtiden. Forskningen har bedrivits
som ett delprojekt i Climatools, ett forskningsprogram om Sveriges anpassning
till klimatförändringarna som är förlagt till FOI och finansierat av
Naturvårdsverket.
Den här rapporten utgår från vad man kan kalla en ”traditionell” förståelse av
säkerhetspolitikens fokus: Användandet av eller hotet om användande av
organiserat väpnat våld. Detta kan utövas av flera aktörer än stater, såsom
organiserade brottsnätverk, klaner, gerillagrupper, terrorister mfl. Vi har valt att
skriva om klimatförändringarna utifrån detta perspektiv då det redan finns många
rapporter om klimatförändringarnas inverkan på vad UNDP (United Nations
Development Programme) har kallat ”mänsklig säkerhet”, eller human security.
Det senare innefattar säkerhet från nöd och därmed inkluderas aspekter som
sjukdomar, svält, och ekonomiska kriser som säkerhetsrisker.2 För denna rapport
däremot står risken för väpnade konflikter i fokus.
Mer precist handlar rapporten om hur klimatförändringarna påverkar villkoren
för konflikt respektive internationellt samarbete. Samhällsvetenskapligt sett kan
man inte säga att klimatförändringarna direkt orsakar konflikter, däremot kan
globala och regionala klimatförändringar förändra, och i vissa fall förvärra,
villkoren för säkerhetspolitik på många håll i världen. För att skilja på de effekter
som klimatförändringarna får direkt på naturliga system och de som de får
indirekt på politiska system talar rapporten om naturliga och politiska effekter.
Rapporten fokuserar på konsekvenserna av måttliga klimatförändringar, i syfte
att belysa att även minskade klimatförändringar kan få säkerhetspolitiska
implikationer. Rapporten närmar sig frågan på två sätt:
1. Genom att undersöka de konsekvenser som klimatförändringarnas direkta
effekter – såsom torka, översvämningar, och havsytehöjning– kan få på
säkerheten i världens regioner.
2
WBGU 2007b:20
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2. Genom att undersöka hur frågan om klimatförändringar påverkar den
internationella politiken. Klimatfrågan är så att vi bedömer att såväl
klimatförändringarnas effekter som ansträngningarna att hantera dem genom
nedskärningar och anpassning kommer att förändra den internationella
politiken. En kärnfråga är huruvida klimatförändringarna skapar nya villkor
för hur internationell politik bedrivs och eventuellt nya konfliktmönster eller
om klimatförändringarna förstärker existerande mönster.
De långsiktiga samhälleliga konsekvenserna av klimatförändringarna är mycket
svåra att analysera på ett vetenskapligt sätt. Dels då klimatförändringarna på sikt
kan leda till mycket stora skillnader gentemot dagens situation, dels då det är
mycket svårt att analysera orsakssambanden i flera led.3 Därför har vi valt att
skriva rapporten i ett fyrtioårsperspektiv, dvs. slutsatserna behandlar perioden
fram till år 2050. Det innebär att vi har antagit att mindre kraftiga förändringar då
har ägt rum och att vi i denna rapport analyserar initiala konsekvenser av
klimatförändringarna.
Rapportens huvudpunkter
Stora klimatförändringar kan på sikt förändra global säkerhet
Mycket allvarliga klimatförändringar kommer, framför allt på lång sikt att kunna
medföra stora förändringar i den internationella politiken i en mer instabil
riktning. Detta beror dels på territoriella förändringar, dels på grund av att
världsekonomin kan drabbas mycket hårt. Territoriella förändringar innebär att
förändringar i temperatur och nederbörd kan påverka vissa områdens försörjningsförmåga så att de kan komma att betraktas som obrukbara. På lång sikt
kan även havsytehöjningen innebära territoriella förändringar i bemärkelsen att
länder ”förlorar” mark. Sammantaget kan klimatförändringar innebära mycket
stora påfrestningar på samhällen och stater, något som de på sikt kanske inte kan
klara av. Det är en anledning till att det är angeläget att ansträngningar görs för
att minska klimatförändringarna. Med andra ord kan oförminskade klimatförändringar på lång sikt skapa nya och instabilare villkor för den internationella
säkerhetspolitiken.
Klimatförändringarnas konsekvenser betingas av politiska strukturer
Inledningsvis, dvs. inom tidsramen för denna rapport, kommer klimatförändringarnas effekter att betingas av existerade ekonomiska, politiska och
3
Detta gäller inom de utgångspunkter som valts för studien. Ett annat tillvägagångssätt finns
redovisat i Dreborg 2004.
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sociala strukturer. Med andra ord kommer inte klimatförändringarna att skapa
helt nya mönster utan att förstärka existerande strukturer.
Staters förmåga och agerande är avgörande för konfliktrisken
En fråga där staters roll och agerande är av största betydelse för om effekter av
klimatförändringar medför en ökad konfliktrisk är den om flyktingströmmar. I de
fall där konflikter har uppstått i samband med flykting- och migrationsrörelser
har de inblandade staterna, både staten människor flytt från och den som de flytt
till, spelat avgörande roller. Ibland har de aktivt utnyttjat eller skapat
motsättningar mellan lokala grupper eller använt dem som brickor i ett större
maktspel. I andra fall kan oförmåga att hantera en flyktingsituation eller
bristande insikt eller ansvarstagande leda till problem.
Majoriteten av flyktingar stannar kvar inom landet eller flyr till angränsande
länder. Detta gör att det finns anledning att betvivla uppgifter om att klimatförändringar kan leda till långväga flyktingströmmar och att dessa skulle utgöra
hot mot Europa. Klimatförändringar kan dock leda till att många människor i
utsatta områden kan tvingas lämna sina hem och bostadsorter vilket kommer att
kunna sätta press på storstäder i närområdet. Detta i sin tur ökar såväl människornas som städernas sårbarhet för klimatförändringar, eftersom städer ofta ligger
vid kuster och därför kan drabbas av havsytehöjningar och av extremt väder.
Det finns olika vägar till konflikt som följd av klimatförändringarna
En första kategori är interna konflikter. Dessa kan uppstå då politiska aktörer
försöker utnyttja resursfördelningsfrågor i samband med naturkatastrofer eller
spänningar mellan befolkningsgrupper i samband med att samhället försvagas av
klimatförändringar. En viktig förutsättning för denna typ av konflikter är
regeringars eller staters oförmåga eller ointresse att ta ett aktivt ansvar för att
klimatförändringar inte drabbar olika befolkningsgrupper olika hårt. Det är också
tänkbart att politiker som försöker befästa eller stärka sin ställning underblåser
motsättningar i syfte att skyla över sin oförmåga eller ovilja att hantera den
uppkomna situationen och istället avleder befolkningens uppmärksamhet genom
att utse syndabockar. Ytterligare en tänkbar risk är att de påfrestningar som
klimatförändringar kan medföra kan utnyttjas av politiska aktörer för att försvaga
oppositionella (reella eller potentiella) grupper.
En andra kategori är mellanstatliga konflikter som kan uppstå till följd av att ett
land försvagas av klimatförändringar. I en region där länderna har fientliga
relationer och uppfattar sin säkerhet som ständigt utmanad av sina grannar skulle
en försvagning av ett av länderna kunna ge upphov till ett ingripande från
grannarna. Detta skulle kunna ske i syfte att förstärka sin egen position i regionen
eller för ekonomisk vinning. Ett analogt exempel på denna slags konflikt är
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krigen som uppstod i samband med sammanbrottet i Zaire/Kongo 1998-2004, då
flera grannländer intervenerade med egna intressen.
En tredje kategori är mellanstatliga konflikter om resurser eller land. Huvudanledningen till att rapporten behandlar detta som en separat kategori är den
uppmärksamhet som ”resurskonflikter” rönt inom media och allmän debatt, i
Sverige såväl som internationellt. Av flera skäl ställer sig rapporten tveksam till
detta, åtminstone på kort sikt. För det första har mellanstatliga krig i stor skala
blivit svårare att genomföra, mer ekonomiskt och militärt dyrbara och mindre
legitima sedan 1945. Svårigheterna rör dels att ockupera taget territorium, dels
att modern teknologi, inte minst kärnvapen, är en starkt avskräckande faktor. För
det andra kan klimatförändringar medföra en försvagning av stater, vilket även
drabbar deras förmåga att organisera inför och genomföra krig (se nedan). För
det tredje är få resurser ”statiska”, snarare kan teknisk utveckling leda till
effektivare användning och till att ersättningar upptäcks när en resurs fördyras.
En risk med oförminskade klimatförändringar är dock att de skulle kunna drabba
världsekonomin så mycket att förmågan till teknisk utveckling skulle drabbas.
Detta är emellertid osannolikt på kort sikt. För det fjärde förutsätter argumentet
om resurskrig att de globala marknaderna för fördelning och tillskansning av
naturresurser bryter samman. Endast om handel med naturresurser inte längre är
ett tillräckligt medel kan krig i syfte för en stat att få tag på resurser. Dessutom
förutsätter argumentet dels att staterna skulle återta ansvaret för styrning av
näringslivet inom sina länder, dels att näringslivet återgår till att vara bestämt av
nationsgränser. Dessa två villkor var för handen på 1930- och 40-talen men det
skulle kräva mycket stora förändringar i den globala ekonomin såväl som i
relationen mellan stat och näringsliv på en global skala för att vi ska se en sådan
situation återvända.
En fjärde kategori utgörs av vad vi kan kalla ”lokala överlevnadskonflikter”.
Detta kan uppstå mellan lokalsamhällen som lever nära de resurser som de är
beroende av för sitt uppehälle, som småbrukare och boskapsskötande nomader.
Även i detta fall är statens agerande av central betydelse. Risken för konflikter
ökar markant om staten underlåter att upprätthålla lag och ordning, dvs. sitt
våldsmonopol; om staten inte agerar aktivt för att åtgärda mänsklig nöd;
eller – givetvis – om den utnyttjar lokala konflikter i egna syften.
Resursbrist leder inte bara till konflikter, utan även till samarbete
Bristen på resurser leder inte nödvändigtvis till konflikter. Istället visar många
studier att stater och aktörer i civilsamhället kan samarbeta om gemensamma
men knappa resurser. Andra exempel visar på att aktörer kan samarbeta om
livsviktiga naturresurser även under spända säkerhetspolitiska förhållanden. Ett
exempel på hur en objektiv brist på resurser kan leda till samarbete är the
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Okavango River Basin Commission som bildades 1993 mellan Angola,
Botswana och Namibia som ett svar på konflikter på lokal nivå i samband med
vatten i Okavango-floden.4 Istället för att dessa konflikter fortplantades upp på
statsnivå ledde den gemensamma myndigheten till ett förstärkt samarbete mellan
staterna såväl som till bättre vattenhushållning. Liknande exempel är the Nile
Basin Commission som bildats mellan de länder som försörjs av Nilen och som
stöds av EU.5 Vi kan även se till relationerna mellan Indien och Pakistan för ett
exempel på hur vattenresurser kan hållas åtskiljda från andra konfliktdynamiker.
Sedan 1960 regleras de två ländernas uttag av vatten ur floden Indus av the Indus
Water Treaty.6 Detta arrangemang är anmärkningsvärt i ljuset av att länderna har
mycket spända, tidvis fientliga relationer i övrigt.
Försvagade stater skapar komplexa säkerhetssituationer
Klimatförändringarna kommer att kunna försvaga samhällen och stater vilket får
två olika säkerhetspolitiska effekter. För det första kan förmågan att upprätthålla
lag och ordning drabbas vilket kan leda till instabilitet i landet. Försvagning av
ett samhälles infrastruktur, institutioner och resurser kan dock innebära att andra
strukturer, exempelvis klaner, också försvagas. Detta kan få till följd att risken
för storskaliga inbördeskrig minskar men däremot att sönderfallstendenser i
staten och i civilsamhället ökar. För det andra kan försvagningen av en stat
innebära att dess förmåga att hota sina grannar såväl som den egna befolkningen
minskar. Dessa mångfacetterade effekter av försvagning på grund av
klimatförändringar gör att vi kan ställas inför komplexa situationer i framtiden,
om än inte nödvändigtvis storskaliga konflikter.
Klimatförändringar verkar i kombination med miljöförstöring
Klimatförändringarna får säkerhetspolitiska konsekvenser i samverkan med
andra faktorer. Ovan har vi nämnt att politiska och ekonomiska strukturer är
betingande för detta. Det bör betonas att klimatförändringar kan komma att
samverka med storskalig miljöförstöring och på så vis försvaga och rentav
utarma utsatta länder. Ett sådant exempel är Kina som flera rapporter pekar ut
som påtagligt sårbart för klimatförändringar samtidigt som landet hotas av
storskalig miljöförstöring. Sammantaget kan detta innebära en försvagning av
Kina, ekonomiskt och politiskt, vilket eventuellt kan leda till landsinterna
problem. Ur ett internationellt perspektiv är det betydelsefullt om detta påverkar
Kinas utveckling mot att bli en regional och global stormakt.
4
Barnett 2000:277 Se även Okavango river basin commissions hemsida http://www.irbm.co.bw/
Nile Basin Initiative http://www.nilebasin.org/ access 2007-07-25
6
Indus Water Treaty http://transboundarywaters.orst.edu/projects/casestudies/indus.htm.
access 20070813
5
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Klimatförändringar hotar utveckling
Klimatförändringar kan lägga en hämsko på ekonomisk, social och i viss mån
politisk utveckling i många länder i utvecklingsländerna. Sedan 1960-talet har
forskningen däremot varit delad om vilka konsekvenser som utvecklingsgrad får
för säkerhet och konfliktbenägenhet.7
En drabbad världsekonomi kan påverka internationell säkerhet
Klimatförändringar drabbar ekonomin och en försämrad världsekonomi kan vara
en faktor som påverkar det säkerhetspolitiska läget i världen. Man kan inte dra
otvetydiga orsak-verkan-samband mellan världsekonomins tillstånd och det
säkerhetspolitiska läget i världen. Däremot kan en global nedgång i ekonomin
minska de tillgängliga resurserna för krishantering och fredsbevarande operationer. På längre sikt skulle en långvarig ekonomisk kris kunna leda till större
isolering mellan stater. Dessutom skulle de i ett sådant scenario kunna komma att
ta på sig en större roll för att säkra sina samhällens ekonomiska överlevnad och
tillgång på resurser vilket skulle kunna leda till en konkurrenssituation med
säkerhetspolitiska förtecken.
Betraktar man enskilda regioner i världen bekräftas bilden att en ekonomisk
nedgång skulle kunna leda till ett mer spänt säkerhetspolitiskt läge. I såväl
Mellanöstern som Sydasien kan man historiskt koppla stabilitet till ett förbättrat
ekonomiskt läge. Stora ekonomiska kriser kan leda till intern oro och därmed få
säkerhetspolitiska konsekvenser men detta en möjlig, men inte nödvändig
utveckling.
Klimatfrågan kan leda till spänningar eller till samarbete
Frågan om hur klimatförändringarna ska hanteras i form av globala minskningsoch anpassningsåtgärder kan skapa komplikationer och spänningar inom det
internationella systemet. Detta då klimatfrågan kan kopplas till flera andra
kontroversiella frågor av global karaktär. Exempelvis menar flera utvecklingsländer, däribland Kina och Indien, att de redan utvecklade länderna i Nord bär
huvudansvaret för klimatförändringarna och att uppgiften att minska konsumtionen av fossila bränslen inte får inskränka rätten till ekonomisk utveckling för
utvecklingsländerna. På så vis kan klimatfrågan eventuellt bidra till spänningar,
både mellan enskilda stater och i en Nord-Syd dimension.
Hanteringen av klimatförändringarna skulle kunna få effekter på FN-systemet.
Detta kan ske dels genom att spänningarna stiger och det blir blockeringar i
7
Se Suhrke 1997 såväl som Huntington 1968
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säkerhetsrådet, dels genom att systemet överlastas på grund av de ökade behoven
av internationella insatser.
Ska klimatförändringar ses som en (traditionell) säkerhetsfråga?
Även om klimatförändringarna kan påverka säkerhetspolitiken globalt såväl som
regionalt betonar vi vikten av att inte betrakta klimatförändringarna primärt som
en traditionell säkerhetsfråga. Att göra det, vilket är mycket kontroversiellt inom
forskningen om kopplingen mellan miljö och säkerhet, kan skapa självuppfyllande profetior och ge bränsle åt en rustnings- och säkerhetslogik som kan
skapa spänningar. De direkta konsekvenserna av klimatförändringarna kan
hanteras mycket mer effektivt genom civila kanaler än genom även om militär
personal kan vara behjälplig t ex vid naturkatastrofer.
Åtgärder för att minska klimatförändringar och anpassa samhällen till dem
kan påverka internationell säkerhet
Åtgärder för att minska utsläppen av fossila bränslen såväl som åtgärder för att
anpassa samhällen och stater till kommande klimatförändringar kan få
säkerhetspolitiska konsekvenser. Ett exempel på det förstnämnda är att radikala
minskningar i konsumtionen av fossila bränslen, framför allt olja, kan drabba de
oljeproducerande ländernas ekonomier och därmed på sikt deras stabilitet. Därför
är det en mycket viktig uppgift att skapa lösningar och strategier förminskningsåtgärder som inte drabbar producentledet så hårt. Ett exempel på det andra är att
ojämlikheter i angränsande länders anpassningsförmåga kan påverka säkerhetsbalanser i regionen. Därför är det viktigt med regionala såväl som nationella
perspektiv på klimatbiståndet. Därigenom kan gränsöverskridande samarbete i
utsatta regioner befrämjas så att anpassningen till klimatförändringarna sker med
förtecken av samarbete snarare än konflikt.
Det faktum att minskningen av och anpassningen till klimatförändringar kan få
säkerhetspolitiska konsekvenser bör inte leda till att man avstår från dem.
Snarare måste dessa nödvändiga åtgärder utformas så att de bidrar till internationell stabilitet och inte till spänningar.
Övergången till alternativa energikällor kan påverka säkerhetspolitiken
På längre sikt kan även övergången från ekonomier baserade på fossila bränslen
till alternativa energikällor komma att ses i ett säkerhetspolitiskt perspektiv. I
händelse av ett framtida mycket spänt omvärldsläge skulle ledande aktörer kunna
bedöma att övergången från ekonomier och försvarsmakter baserade på fossila
bränslen utgör en säkerhetsrisk. Detta då man skulle vara rädd för att försvagas
under en övergångsperiod. Därmed skulle ett spänt säkerhetsläge försvåra
minskningen av klimatförändringarna. På motsvarande sätt skulle övergången
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från fossila till förnyelsebara energikällor kunna ses som en säkerhetspolitisk
investering. Det skulle emellertid vara olyckligt och problematiskt om
traditionellt säkerhetspolitiskt tänkande och klimatanpassningstänkande skulle
komma att länkas ihop. Det skulle kunna innebära att klimatanpassning antingen
försummas till förmån för säkerhetspolitik. Anpassningsåtgärder, om de inte
genomförs i multilaterala fora, skulle även kunna skapa ett mer spänt världsläge.
Detta skulle kunna ske om olikheter i anpassningsförmåga leder till en ökad
obalans i världen, inte bara mellan Nord och Syd utan även mellan stormakterna.
I sin tur skulle detta kunna betraktas som ett säkerhetsproblem av de aktörer som
ser sin ställning försvagas gentemot länder med bättre anpassningsförmåga.
En långsiktig övergång till andra energikällor än fossila bränslen är nödvändig.
En utmaning ligger i att se till att detta görs gemensamt och i samarbete av
världssamfundets medlemmar och undvika att det leder till konkurrens och
osäkerhet.
Klimatförändringarna är en fråga för gemensam och odelbar säkerhet
Inom forskningen om internationell politik och säkerhetspolitik skiljer man på
”delbar” och ”odelbar” säkerhet. Delbar säkerhet baseras på en syn på säkerhet
som ett nollsummespel, en vinst för mig, är en förlust för min granne. Så har
traditionella säkerhetskalkyler sett ut. En uppfattning av säkerhet som odelbar
innebär att ”en stats säkerhet inte kan skiljas från andra staters”.8 För att säkerställa internationell stabilitet i framtiden måste en bred konsensus skapas om
klimatförändringarna som en fråga för odelbar säkerhet. Det är viktigt att etablera
en sådan förståelse snarast, eftersom klimatförändringarna kan komma att medföra stora påfrestningar såväl på stater som på internationella relationer i
framtiden.
Med tanke på att klimatfrågan nu har tagit plats på den internationella dagordningen står vi idag inför en historisk möjlighet att etablera en sådan förståelse.
Därför är det viktigt att den internationella diplomatin börjar verka i samförstånd
i klimatfrågan. Genom att agera nu kan vi föregripa internationella spänningar,
konkurrens och konflikter i klimatförändringarnas skugga.
8
Adler 1998:119
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1 Introduction
1.1 Setting the Scene
Of all the issues on the global political agenda in 2007, global warming and its
associate, climate change, is truly one of those topics that do not require an
introduction because they are so well-known. In this past year the topic has
received great media attention around the globe from the United States, to Japan,
from Sweden to South Africa. 2007 has also been the year when climate change
was raised to the top of the agenda of mainstream politics, on national and on
global levels. Not only have former sceptics of climate change, such as President
George W. Bush, recognised the problem and the urgency of addressing it but the
issue has also been debated in the Security Council of the United Nations
(UNSC) as well as in the smaller circle of the G8. The European Union has
begun to devise extensive policies not only of mitigation but also of adaptation to
climate change and global warming.
With the move of climate change into the mainstream political optic and into the
top level of government and global governance, the issue has rubbed off on one
of the hallmarks of ‘high politics’, namely security politics. Acting on the
initiative of the United Kingdom, the UNSC debated the topic from this
perspective. Although not all members of the UN were positive to deliberating
the issue in that particular forum, the connection between climate change and
security seemed to have established itself in the political sphere. Within the
scientific community, a great degree of familiarity and certainty has also been
achieved. The latest reports of the United Nations Intergovernmental Panel on
Climate Change, (IPCC), have now reached a state of unprecedented accuracy
and certainty in their conclusions that the climate of the planet is changing.
Drawing on this extensive evidence of familiarity, one may indeed concur with
the opening sentence of this report, that climate change needs no introduction
and perhaps that previous gaps in our knowledge about it have been filled.
According to this view, what now remains is further perfection of knowledge and
political action. Somewhat surprisingly, this report argues the contrary, not least
concerning the consequences of climate change for societies and states across the
globe as well as for the international system itself.
Amid the certainty regarding those aspects of climate change that are studied by
the natural and physical sciences such as meteorology and geography and the
familiarity which the general public and politicians alike display concerning the
phenomenon of climate change, a great degree of uncertainty still prevails
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concerning the aspects of climate change that are best approached through the
social sciences such as sociology, political science and international relations
(IR). This uncertainty and lack of clarity, or indeed lack of an analytical
framework with which clarity could be produced, is particularly pronounced in
the interface between climate change and international security.
Such lack of clarity is disquieting, not only because of the gravity of both issues
and of their possible interconnections but also because of the interactive nature of
international security. As opposed to the proverbial perils of crying wolf that too
many false alarms result in nobody listening when it is too late and the wolf is at
the door, ‘crying wolf’ in matters of security always causes people to listen
intently and both crier and listeners may by their mutual fears conjure up the
wolf.
Therefore, this report aims to provide a framework for understanding and further
researching and debating the security impacts of climate change, as well as
describing the current state of research, in order to provide a map of possible
consequences and to discuss the specifically political dynamics of security in
relation to climate change.
Specifically, the report addresses the following research questions:
• Will climate change have a significant impact on world politics and affect
global security politics?
• Will climate change have a significant impact on politics in regions of the
world and affect regional security politics? If so which regions are likely to be
affected?
• Will climate change have a significant impact on politics within states and
affect their internal and external security politics?
This report extends until the year 2050, which is a very long time in the social
sciences. The reason for choosing this date is that the changes in climate are not
predicted to become substantial before this time. Some of the changes projected
by the IPCC and other reports, such as the Stern Report, are of such magnitude
and complexity that although fifty years is a very long time in some respects,
substantial foresight is required in order to adapt to them. A long period of
adaptation of states, societies and the international system may be necessary in
order to deal with the challenges ahead thoroughly and in a way that is perceived
as equitable by all parties concerned. The alternative, rushing changes and rapid
adaptation may not only be more costly but also more destabilising to states,
societies and international relations.
Naturally, this report makes no pretence at forecasting the political world in its
entirety by 2050 as such a venture would be flawed at best and approaching
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hubris at worst. Many of the features characterising international politics in
2007, such as the economic strength of South-east Asia, China and indeed Japan,
the European Union, the territorially reduced Russia, satellite-guided warfare etc.
were unforeseeable in 1957 and would have seemed improbable to most analysts
and politicians of the time. Therefore, this report makes no pretence at
forecasting political, social or economic innovations. Strictly speaking, from a
methodological point of view, this makes this report of the world in the year
2050 anachronistic it projects our world in 2007 into the future of climate
change. Regrettable as it may be from a strictly methodological point of view,
this option is preferred here to the alternative, primarily because, the alternative
of combining natural science forecasts with speculative social science would be
worse than rigorous analysis of the social world as it is today combined with
natural science forecasts. Whatever the flaws of the chosen method, this author
believes that it is the least problematic of the alternatives at hand.
1.1.1
The Theoretical Framework of the Study
This study combines a number of theoretical perspectives in order to provide a
comprehensive understanding of the interlinkage between climate change and
international politics / international security. For a disciplinary point of view the
study is grounded in International Relations (IR) theory but it makes no claim to
exclusively be based on one school rather than another, e.g. it does not take sides
in the long-standing debates on the relative merits of ‘Realism’ as opposed to
‘Liberalism’ but rather includes factors that the two ‘camps’ tend to emphasise.
For example, organised, relatively large-scale violence is at the centre of interest
of this study, which is reflected in its research questions. Privileging this aspect
of societies and of politics might strike some readers as a ‘Realist’ trait.
However, the study also considers trade and economy as highly important factors
in determining whether the relations between states of a certain region will be
bellicose or not. International institutions, ranging from ‘thin’ regimes like the
WTO to ‘thick’ structures like the EU are also considered very important in
determining what role organised violence will have on inter- as well as intra-state
levels of politics. Although these factors may be seen as polarities in an IR
context, they are integral to the (historical) sociological tradition ultimately
harking back to Max Weber. Such a focus is also a trademark of the historical
institutionalist strand within organisational theory.
Any reader familiar with the taxonomy of IR theory will identify the emphasis
that the study places on intersubjective structures that constitute the scope in
which social action occurs as reflective of a ‘constructivist’ heritage. Thus,
within the theoretical repertoire of IR theory, the study seeks to cover as broad a
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spectrum as possible in order to avoid the respective biases of the different
traditions. In the study, this is done within a larger sociological framework that
focuses on the generation of social action, again a highly ‘Weberian’ trait that
was reinforced and explicitly outlined in the works of Talcott Parsons. The one
aspect of the study that breaks with the Weberian-Parsonian heritage of the study
is the use of Niklas Luhmann’s Modern Systems Theory (MST) to conceptualise
the bridge between natural systems, such as the climate system and social
systems, such as the international political system. Luhmann’s sociology departs
from the classical sociological heritage in many ways, most notably for the
peripheral part that agency plays in it. This study does not use MST to
conceptualise phenomena on the level of action which avoids inconsistencies.
Consequently, these combinations of the three main orientations within IR theory
as well as the two principal strands in contemporary sociology, sociology of
action and MST, have been chosen and designed to avoid biases and the
partiality that any single one perspective would have entailed.
It should be stressed that this study does not deal with climate change per se but
rather with its implications for international politics / international security.
Therefore, it does not bring forward any new and / or substantial findings on
global warming and climate change. Since the report has been written from the
viewpoint of sociology and political science and not, say, meteorology, it will not
discuss the methods of the IPCC. Nor will it direct criticism towards the findings
compiled by the panel. The report differs from scenario-based studies and
futurologist studies in the sense that is does not attempt to draw up a range
possible future developments. Coming from a different scholarly tradition
outlined above, the report seeks to understand the structural conditions that
would enable or even determine a certain scope of possible actions.
1.1.2
Further Research
This study does not have the ambitions to have the last word on this undoubtedly
complex and large subject. Rather, a number of possible and desirable issues for
future studies can be distilled from the findings and the perspective of this report.
The following are some examples:
1. The role other macro-trends, such developments in technology and the
demographic structure of the world, will play in connection with climate
change in shaping tomorrow’s world.
2. The role of adaptation technology, with particular regard to finding
alternative energy sources in the international security environment until
2050.
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3. How will climate change, both in terms of actual effects and in terms of
expectations of change, affect the global security politics of the world’s
major players such as the United States, China, Russia etc. In other words,
how will their relations to each other be affected?
4. What might the more specific effects of climate change on stability and
prosperity in Russia be? 5) What could the more detailed consequences of a
‘catastrophic’ or ‘worst-case’ scenario of climate change be?
1.1.3
Guidelines for Readers
Something in the form of guidelines for reading this report may be appropriate.
This report has been written with a wide and diverse readership in mind and
therefore all parts may not be of equal interest or relevance to all readers. The
two primary categories of users are, on the one hand, people active in policy
formulation and policy advocacy and, on the other hand, scholars who take an
interest in the connection between climate change and (international) politics in
general and between climate change and violent conflict in particular. The
disposition of the report reflects the differences between these groups and their
needs.
Readers who are primarily interested in policy recommendations will probably
find the conclusions in Section 5 best suited to their interests as these summarise
the report in broad although not simplified strokes. Sections 1 and 2 are the most
theoretical parts of the report and will probably be of most appeal to scholars
interested in the subject. Specialists in a particular geographical or thematic area
may find findings of particular relevance to their field in parts of Sections 3 and
4. Specialists may disagree with the arguments presented in these sections since
they have been written by a non-specialist. Since one of the objects of this report
is to act as a platform for more detailed studies, discussions and debates on the
interface between the social and natural world in the shadow of climate change
the hope is that any shortcomings will be seen as opportunities for continued
inquiries rather than foreclosure of the debate. Having issued this description or,
if you will, guidelines, it must be pointed out that the report is not only designed
to be read as a smorgasbord, but is also intended to be approached in its entirety.
1.1.4
Climate Change as an Intellectual Challenge
It is often the case in intellectual puzzles that perspectives and findings are
interdependent and the subject of this report is no exception. Some of the key
arguments presented in this report result from critical examination of the
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building-blocks of the problem at hand –the effects of climate change on
international politics.
The complexity of the task at hand demands two conceptual clarifications in
order to become manageable.
1. The way in which ‘security’ is defined matters for how the security impacts
of climate change are to be understood. If one defines ‘security’ in a very
wide sense then one recognises immediately the importance of climate
change. However, such an approach renders it more difficult to draw
structured conclusions. If a more restrictive definition is employed then
one’s conclusions can also be more specific.
2. The relationships between climate systems, other natural systems and
international politics are highly complex. A number of misunderstandings
about the security impacts of climate change can be avoided if close
attention is devoted to scrutinising this condition. A proper understanding of
the possible connections between climate and politics may serve to remove
some of the imprecision in the current debate. The two sub-sections below
deal with these two issues.
1.2 The Understanding of Security in the
Report
The concept ‘security’ used in this report denotes largely ‘traditional’ militarypolitical concerns. However, ‘security’ is not considered to be the exclusive
domain of unitary states, since many other entities are active in the field, either as
protagonists or as objects of security. In addition, security is not only about large
scale territorial conflict of the kind that has become known as ‘Clausewitzian’
conflicts. Rather, the nebulous category of actions that can be summarised as
international interventions as well as interactions between states and non-state
actors are included. Adopting this as the vantage point may seem unusual in a
report on geopolitics and climate change since there have been many calls since
the 1990s to widen the concept of security, particularly with regard to
environmental factors. There is a simple reason behind this choice and it is to
provide a concentrated analysis of the effects of climate change on international
politics in general and on international security in particular.9 Since the report
concerns climate change and its effect on natural systems that which usually goes
under the term ‘the environment’ in already included and its potential
connections to security are already acknowledged. Furthermore, the report
9
For a similar argument see Vayrynen 1998:12-15
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acknowledges the powerful connections that exist between different social
systems and policy areas. International security is connected to the sectors of
economy, of finance, to aforementioned natural systems, to human security etc. It
is connected, but for reasons of clarity the report assumes that it is a distinct and
separate system.
One can also argue that there is justification in devoting a report to the possible
consequences of climate change in the orthodox understanding of international
politics in general and international security in particular. There have been many
reports on climate change and its potential effects on the security of ecosystems
(if indeed, it is meaningful to talk about their viability and survival in terms of
security) as well as on ‘human security’ (i.e. the well-being, welfare and,
ultimately, survival of human beings), but none that has systematically dealt with
its potential effects on international politics/security.10 Therefore, for analytical
as well as pedagogic reasons a starting-point of this report is that politics,
security, economy and ecology are systems that are separate but in some ways
connected to each other.
On the basis of this understanding of security and arguments presented below the
main argument of this report is that many of the adverse consequences of climate
change on human and natural systems will not have security effects in a direct
sense and only indirectly on the conditions underlying international politics. This
perspective in no way denies the suffering and hardships that climate change
might bring, consequences that are necessary to address. It does, however, stress
that they may not be more than indirectly related to security concerns. In order to
clarify and further the argument we have to take a closer look at the issue of
causality.
1.3 How Does the Climate Affect Politics and
Societies?
1.3.1
The Climate is not a Cause – It is a Condition
Some of the fundamental assumptions of this report have to do with the causality
of climate change. Scholarly literature, political discourse and media coverage of
climate change tend to portray it as a single phenomenon or set of phenomena
that directly causes other events to happen. This automatic view is not shared by
this report. Instead, here the climate is regarded as one of the conditions in which
10
For a recent argument that environmental change should be conceptualised as an issue for human
security see for example O’Brian 2006
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human action - cultural, economical, political, social etc - takes place. Therefore
changes in the climate may in turn alter some of the other conditions in which
humans act. This report is interested specifically in political action. In order to
clarify this argument and to make the distinction between it and views that imply
an ‘automatic’ character of the relationship between natural phenomena and
social action a brief expatiation on different theories of causal connections is
necessary.
Ever since Aristotle the theory of science has distinguished between different
kinds of causes.11 The most common perception of causality is that of an event
(a) directly preceding and giving rise to another (b). In the taxonomy of causation
this is called effective or proximate causation. Sometimes it is called Newtonian
causation, a name that reveals its intimate connection to the natural sciences as
well as social sciences seeking to emulate the latter. Another type of causation is
material or permissive causation, which signifies an event or process that
enables, but does not directly lead to, other subsequent events. Permissive causes
relate to their effects in the following way. The effect would not have been
possible without the previous cause, but the effect did not follow with necessity
from its cause. An example would be nationalism being a permissive cause of the
mass mobilisation of World War One. Nationalism allowed mobilisation to occur
but it did not lead to the war in a deterministic way. For an event that is the
product of human action, to occur decisions have to be made. Such decisions are
the products of human cognition and human volition. This means that in the
realm of politics, things can always turn out differently, and that there is no
simple determinism.
The climate, or to be precise, the different climate systems of the world, are
important conditions for the scope of human action. Humans depend on a
number of natural systems for their survival and for the stability of their
societies. The degree to which they do so and the ways in which this dependence
is expressed and managed varies greatly between different societies in history as
well as across the contemporary world.
1.3.2
Climate Change will not Transform Political Systems
– Political Systems will Interpret Climate Change
As noted above, climate change and global warming entered the mainstream
political debate and mainstream media in full force during 2007. This entrance
11
Concerning causation in Aristotle see Marc-Wogau 1996:179-182. For recent examples of
reasoning in the social sciences that distinguishes between these two kinds of causation see Wendt
1999:165, 2002:6-8, Dessler 1989:453
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was accompanied by speculations about climate change giving rise to ‘new
conflicts’ or of drastic transformations of political structures. Some of these
speculations took the form of visions of ‘back to the past’ scenarios of conflicts
over land or of apocalyptic movies such as ‘Mad Max’ in which Mel Gibson’s
character traversed a devastated post-nuclear Australia where modern society had
disappeared only to be replaced by quasi-tribal ‘every man for himself’
anarchy.12 Even observers who avoided such hyperboles nevertheless presented
arguments that implied that climate change may of itself introduce new
conditions previously alien to the contexts in which they would appear. This
report argues that this mode of thought builds on problematic assumptions of
how socio-political systems change and of the relationship between nature and
society. Climate change, or the effects of climate change (such as drought, sea
level rise, floods etc.), will probably affect social and political affairs, including
security interactions. However, the natural effects of climate change cannot
introduce wholly new social conditions but will rather play into existing
conditions.13
In order to ascertain whether climate change could change existing sociopolitical structures, including those relating to international politics and security,
as well as the ways in which such a change could occur, two clarifications must
be made. The first concerns the relationship between natural and social systems
and the second concerns how change occurs in social systems. In the following,
the relationship between natural and social systems will in the following be
understood with the help of Modern Systems Theory (MST) as formulated by
Niklas Luhmann.
This report argues that like other natural events, climate change does not have
effects independently from socio-political contexts. Therefore, contrary to
popular belief, one cannot say that changes in climate or effects of changes in
climate will in themselves cause social and political events. Instead, the effects of
climate change will vary with prevailing socio-political contexts within and
between states. This is why any analysis must be based on an understanding of
these. To clarify this argument and to address the question of whether climate
change will lead to new conflicts in a sociologically rigorous way, an excursion
is required into thinking about the generation of action.
12
The similarity of the imagery in resource scarcity scenarios to the movie the ‘Road Warrior’ have
also been noted by Matthew, Gaulin, and McDonald, 2003:866
13
It is erroneous to believe that social and political systems are or can be transformed by external
factors. Rather all changes, including those for which the proximate causes are ‘external’ occur on
the basis of existing conditions.
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Armed conflict is, basically, a kind of human action and sociological thinking
has for over a century been occupied with the problems of why people act and
what makes them act in the ways that they do. These problems are usually
addressed in terms of the generation and direction of action.14 In turn, it must be
stressed that human actions are events that can be expressed and understood in
intersubjectively meaningful ways.15 Indeed, intersubjective understanding is
necessary for action to take place at all. This means that action is always
connected to systems of beliefs and ideas about the world and that rational
human action always proceeds from purposes or motives of some kind. These
purposes and motives in turn are derived from what we may call social and
political systems.16 For example, paying taxes is an action that presupposes a
great number of socio-political systems in order to be meaningful; such as the
state, notions of citizenship and obligations etc. Changes in socio-political
systems will also change the meanings of actions, for instance the introduction of
welfare provisions changed the extraction of taxes from amounting to little more
than protection money to something more like investment in a mutual insurance
fund.
When studying climate change, however, we are interested in what kind of
actions may be generated by changes not in socio-political systems, but in natural
systems. In this regard social theory faces an unusual puzzle since it is
conventionally concerned with how social causes generate social effects.
However, in contrast to previous arguments in the field of environmental
security, we argue that the connection between natural causes and social action
cannot occur in an unmediated way.17 The idea that human beings act directly
upon changes in nature is based on false assumptions about action, cognition and
nature. All occurrences in natural systems must be interpreted through a sociopolitical context in order to acquire meaning and thereby to become the focus of
human action.
The relationship between natural and social systems can be usefully clarified by
using the terminology of Niklas Luhmann, and Modern Systems Theory (MST).
MST conceptualises the world in terms of discrete functional subsystems, such as
law, politics, economics etc. These systems are closed systems that operate
14
Parsons 1968
This view is, of course essentially that of Hans-Georg Gadamer for an expatiation see Gadamer
2004
16
See for example Scott 2001
17
For example, Deudney 1999 argues in favour of the view that natural causes can produce social
effects
15
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according to their own logics.18 Systems are also ‘autopoietic’, which means that,
like living organisms (in Luhmann’s terms, ‘physical systems’) they reproduce
themselves. Although autonomous, functional subsystems are connected to other
systems in their environment by means of ‘structural coupling’. Since each
system is closed, events that occur in other systems have to be translated into the
terms in which the social systems in question (e.g. politics, law) operate in order
to become intelligible.19 Intelligibility, as argued above, in turn is necessary for
action to be generated. In Luhmann’s view, systems observe other systems in
their environment and react to changes in them, but they do so according to their
own logic. This means that the social and the natural world can be conceptualised
as two closed ‘functional subsystems’ and that the social subsystem observes
natural systems, such as the climate system, and reacts to it according to its own
logic. In the terms of the present report, the conception of ‘social system’ as a
functional subsystem as opposed to ‘natural systems’ encompasses political,
legal, social (in the more strict sense) systems, in other words, systems that rely
on human cognition and volition.
This conceptualisation provides us with a much stronger epistemological
foundation for understanding the relationship between the social and the natural
world. It also enables us to recognise that changes in natural systems have to be
interpreted, in the widest sense of the word, in order for social systems to be able
to act upon them. It is easy to understand that a predominantly agrarian society in
which the majority of people survive on subsistence farming, reacts to (or in
MST terms, interprets) a drought differently from an advanced industrial society
with a well-developed division of labour, mechanised irrigation systems and
market mechanisms (both domestic and international) for the procurement and
distribution of foodstuffs. In other words, different socio-political contexts give
rise to different interpretations of natural events and give rise to actions towards
them.20 It should also be noted that different socio-political contexts produce
different effects on natural systems. Climate change is of course a good example
of this since it the changes in the climate system (a natural system) are reactions
to the fossil fuel emissions produced by a historically particular system, namely
industrial civilisation.
18
19
20
For a good overview see Bania-Dobyns 2005:14
Luhmann 1995 & 1997
It should be noted that some natural events, like volcanic eruptions, have a very strong impact on
societies. However, their effects will vary according to the characteristics of the selfsame society,
both with regard to socio-economic impacts and how the society in question interprets it (e.g. as
the wrath of the gods or as a profane natural phenomenon).
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In less abstract terms, this argument means that the kind of consequences that
climate change effects will have on a certain country varies with several sociopolitical factors. Examples that will be studied in this report are: state-society
relations in a country, the kind of regime the country has (e.g. democratic,
authoritarian, patrimonial), the kind of relations the country has with its
neighbours, whether there are deep fractures in the society and whether there is
latent or actual internal strife in the society. Consequently, this report’s analysis
of the potential for conflict in different regions of the world is based on the
histories of the respective regions. The main thrust of this argument is, hence,
that climate change will not give rise to new conditions or actions in an
‘automatic’ fashion. Rather, it will play into dynamics and structures that exist in
the regions and in the time when they occur. This argument is first and foremost
applicable to initial reactions of socio-political systems to climate change. The
following paragraphs expand more fully how socio-political systems may change
in connection with climate change.
This argument can be clarified by allowing ourselves a counterfactual mental
experiment and assuming that climate change occurred in the world of the
nineteenth century.21 During this time, the international system was dominated by
a few European empires whose mutual relations were characterised by balance of
power and great power rivalry. Their attitudes towards extra-European peoples
ranged from bare tolerance (e.g. the Japanese) through condescension to cruel
racism. Under such an international system, a country in, say, Africa, hard-hit by
poverty, instability and a worsened climate (e.g. sea level rise, drought and water
stress) would probably not be the target of peacekeeping operations and foreign
aid operations. Instead, it would probably be abandoned by its colonising
overlord and left to its own devices. On the European continent, great power
politics would probably sharpen and full-scale inter-state wars would be a real
possibility. The reasons why these developments were likely to happen in our
hypothetical nineteenth century would be embedded in the international political
system as well as in national political contexts of that age.
In contrast, the basic institutions of today’s international system on both global
and regional levels are very different from those of the nineteenth century. This
means that the effects of climate changes in the near future will take place in this
context rather than produce a new context altogether. Any future changes in
socio-political contexts, either on a micro-level, i.e. within particular states, or on
the macro-level, i.e. in the international system as a whole, in which climate
change may play a part will be gradual modifications of today’s conditions.
21
For an overview of counterfactual reasoning in history and political science see Lebow 2000
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For these reasons, simple ‘back to the past’ scenarios are unlikely to materialise.
Since we have different systems of resource allocation, communication and coordination and diplomatic relations than in previous historical periods,
international politics will not revert to historical interaction patterns, peaceful or
conflictual, simply because of changes in natural systems. For that to occur,
political and social systems would have to change first.22 This is not to say that
climate change cannot change political and social systems (such as the
international system) in a more conflict-prone direction. However, the possibility
span of such changes will be determined by today’s structures.
The importance of human cognition, volition and decision also means that the
way in which political actors perceive changes in the climate and in the politics
of climate change also matter greatly to the outcome. If major actors, i.e. states,
perceive climate change as a prelude to military conflicts and begin an arms race,
then that course of action will trigger similar reactions among their neighbours
and lead to a worsened security dynamic. On the other hand, if climate change is
portrayed and acted upon as a series of natural phenomena that have to be
adapted to by means of enhanced civilian diplomacy, foreign aid, technology
transfer etc. then the deteriorating security dynamics will not occur by
themselves.
The argument presented above mainly proceeded along a static formula: Changes
occur in natural systems, they are observed by social systems which in turn act
according to their own logics. Although the relationship between natural and
social systems has usefully been conceptualised in terms of closed systems that
require a translation of external events into their own terms to be able to act, one
must also be open to a conceptualisation of systems as dynamic. In other words,
although systems operate on their own terms, they are also subject to change.
The need to react to changes in natural systems, such as those that will result
from climate change, is in itself a change in the social system. In other words, the
reaction in itself is a change. The argument presented above, that actions will
proceed from social, not natural systems, still holds true but with an important
caveat: The social systems that direct actions will themselves change, often
slowly and in imperceptible ways, but sometimes in drastic and turbulent ways.
22
From a scientific point of view, this analytical problem illustrates the ceteris paribus fallacy,
which consists in believing that one and only one condition is different between two observed
phenomena. In the case of arguments that climate change directly leads to ‘resource wars’ the
different condition between our more peaceful age and previous ages in which conflicts over land
occurred would be ‘scarcity of arable land’. Changes in this condition would, according to the
argument, lead to a reversal of conflict patterns of a previous age. However, this line of reasoning
ignores or downplays the numerous differences between the socio-political institutions of the two
contexts.
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Therefore, the argument that (re)actions to climate change will proceed from the
socio-political systems of today will hold true in the near but not in the distant
future.
It is well-nigh impossible to foresee what changes will occur in socio-political
systems due, strictly speaking, to reactions to climate change, but it is probable
that change will occur. This is another reason why this report deals with a
relatively short time-span. Whether socio-political systems around the globe and
the global system of international politics will change substantially within the
time-frame covered by this report (~50 years) is difficult to say. Change, either
(and probably) cumulative or in sudden bursts of events, that alter the sociopolitical structures of today to different forms may occur within the span between
2007 and 2050 or outside it. In strict terms, therefore, this report should be
understood as dealing with initial reactions and responses to climate change.
Over time however, political and social structures will change and new patters of
action will thereby be generated. Whether such patterns will take the shape of a
greater or reduced proneness to violent conflict, we cannot say. The main point is
still that such changes in the patterns of action require prior changes in sociopolitical structures, and that will probably take time. The diagram overleaf
illustrates the argument and the conceptualisation.
34
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The relation between social and natural functional subsystems
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1.4 Summary
To summarise, this section advanced the following three interrelated arguments.
They have two functions, firstly forming the basis of the perspective of this
report and secondly in their own right constituting arguments about climate
change and security:
1. For reasons of analytical clarity, we understand ‘security’ is understood here
to be the politically mediated actions undertaken to affect the viability of
organised social units, primarily states, but in some cases non-state entities.
The actors seeking to affect the security of a state or other group do not have
to be a state, but can be other kinds of organised groups as well. However,
this report focuses particularly on states as actors as well as objects of
security.
2. The climate is a conditioning factor – a permissive cause – of human action,
not a deterministic, effective cause. This means that the report deals with
how the conditions of international politics may be affected by changes in
global and regional climates. It does not deal with social and/or political
events that the climate causes in a direct sense. Furthermore it means that
climate change in itself does not determine political actions. Thus, the
climate is in itself not a threat and certainly not one that can be countered by
military means.23 It is a condition to which adaptation is necessary but
whether military preparations are a necessary part of the process of
adaptation is decided by political circumstances and by political actors, not
by the climatic system.
3. Social and political actions proceed from social and political systems.
Natural systems, such as climate systems, do not influence human action
directly but are mediated through the political and social systems that already
direct actions. This argument entails that in order for a world characterised
by climate change to develop in a stable and less conflict-prone way, there
will have to be are vital international and national (state) institutions that
ensure that political divisions and conflict do not take the form of violent
interaction between states or sub-state actors.24
These three arguments are advanced with the intention of reducing the
complexity of the problems that the present analytical task entails. Section 2.3
introduces a further complexity-reducing tool, a regional framework for
analysing security interactions developed by Barry Buzan & Ole Wæver (2004).
The purpose of using this model is to outline the regional patters of security that
exist in today’s world as well as the connections firstly between different regions
and secondly between regions and the global level of politics. Section 2 outlines
23
24
I owe this point to Mikkel Vedby Rasmussen
A similar perspective underlies Clark 2007 see in particular pages 2, 15, 17-18
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the three parts of the analytical toolkit from which the analyses in Section 3 are
constructed: Scenarios of climate change, geopolitical theories and a framework
of regional security interaction. Section 3 analyses the security regions of the
world in relation to issues concerning the links between climate change and
violent conflict. Section 4 deals with some specific issues relating to the interface
between climate change and international security. Section 5 summarises the
report and outlines some strategic policy recommendations and suggestions for
further research.
Since there is a substantial overlap between certain thematic issues and regional
concerns certain issues that could have been singled out for sections of their own
are discussed at length together with regional sectors in which they feature
prominently. For instance, water issues are discussed in the section on the Middle
East in a way that has a general bearing on the issue. An example of the
converse, namely thematic treatment of a regional issue is found in the
discussion on the Arctic in Section 4.2, which discusses at length issues of
relevance to Russia and the Nordic countries.
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2 Theoretical Framework
2.1 Introduction
This report may appear unusually theoretical compared with other reports on
climate change and security. This is a trait that can be regarded as a particular
strength in relation to the subject matter. Many of the uncertainties about climate
change and its (potential) relationship to social systems and politics in general
and to security systems and security politics in particular stem from a lack of
clarity not only about the future form of climate change and its consequences for
natural systems but also about the links to social systems and those between
social systems. Due to the daunting complexity that any serious study dealing
with climate change faces a clear and concise framework is necessary in order to
reduce this complexity and to begin to render it intelligible. Without a framework
that separates socio-political systems from one another and that outlines how
they are connected it is difficult to distinguish small and local effects from large
regional or even global effects. Not to mention the difficulty in ascertaining
whether large and local effects really have wider consequences or not or. Even
more important is the ability to ascertain whether relatively small and local
climate effects can have very large international consequences. Without this
ability concrete and hands-on policy-formulation and decision-making becomes
seriously hampered. Hopefully and probably this study will not be the last of its
kind and this report is not written with the intention of having the last word on
the subject. Rather, the ambition is to sketch a framework for studies and debate
on climate change and security. As such, we hope that this study will be
succeeded by far more elaborate and detailed future research.
The following section outlines the theoretical toolkit of the report and does so by
connecting each element to distinct issues around which uncertainty prevails.
Each set of theoretical elements is connected to a set of research questions, all of
which flow from the overarching question of the relationship of climate change
to geopolitics/international politics. The theoretical framework of this report
consists of the following elements:
1) Scenarios of climate change, principally those of the IPCC. 2)social-science
perspectives that deal with the connection between natural systems and
geography on the one hand and social and political system on the other. These
include classical geopolitical theories and the security studies sub-field of
environmental security. 3) A region-based approach to security politics that
differentiates between intra-regional, i.e. between states and sub-regions, interregional and global dynamics and connections. The analyses that form the lion’s
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share of this report are based on this framework. Two key methodological issues
are also dealt with below. The first issue deals with the challenge of combining
natural and social sciences, while the second is how to conduct regional analyses
on the basis of the IPCC scenarios of climate change, which themselves build on
assumptions on future socio-economic developments. The sections below are
used to deduce a number of specific research questions which are more precise
formulations of the general questions stated in the introduction above.
2.2 Scenarios of Climate Change
The basic mechanism of global warming was first discovered in 1827 by the
French mathematician Jean-Baptiste Fourier who noted the similarity between
the atmosphere and a greenhouse. Both produce and retain heat by preventing
incoming energy from the sun from radiating back. There is, however, an
important difference in that a greenhouse prevents the hot air from escaping
while the greenhouse gasses (primarily carbon dioxide, CO2) absorb the longwave heat radiation which is sent back to the earth’s surface. Global warming
was first recognised in 1896 by the Swedish chemist Svante Arrhenius who
argued that a doubling of the carbon dioxide in the earth’s atmosphere would
lead to an increase in temperature by around five to six degrees Celsius.25
Beginning in the late 1950s, Charles Keeling was the first scientist to conduct
repeated measurements of the CO2 levels in the atmosphere and in the sea. His
work demonstrated rising concentrations of CO2 based on measurements in
California, Hawaii and at the South Pole.26
Initially, there was substantial controversy regarding whether changes in the
earth’s climate were anthropogenic or driven by ‘natural’ causes such as solar
patterns or whether the current warming is simply a warm spell in a system
characterised by cyclical variation. However, apart from a few voices of dissent,
scientific consensus has been established that we are experiencing a long-term
warming of the earth’s climate due to the anthropogenic release of greenhouse
gases, primarily carbon dioxide and methane into the atmosphere since 1750, the
start of the industrial revolution.
Today, the main body responsible for synthesizing the most recent climate
science findings is the Intergovernmental Panel on Climate Change (IPCC). The
task of the IPCC is to “assess on a comprehensive, objective, open and
transparent basis the scientific, technical and socio-economic information
25
26
Woodford 2002:256
See Scripps Institution of Oceanography, La Jolla, CA
http://scrippsco2.ucsd.edu/research/atmospheric_co2.html accessed 20070417
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relevant to understanding the scientific basis of risk of human-induced climate
change, its potential impacts and options for adaptation and mitigation” (IPCC
2007). The IPCC does not carry out research itself nor does it monitor climate
related data or other relevant parameters but bases its assessment mainly on peer
reviewed and published scientific/technical literature. The IPCC issues reports
that represent the current consensus of the scientific community regarding
climate change. Therefore, its work is central to the present report. The IPCC
was established in 1988 by the World Meteorological Organization (WMO) with
the support of the United Nations Environmental Programme (UNEP). IPCC’s
assessment work is mainly organised in three working groups. They prepare
reports on the available scientific aspects of the climate system and climate
change (working group one, WGI), on the impacts, adaptation and vulnerability
of climate change (WGII) and on the options to mitigate greenhouse gas
emissions (WGIII). The reports of the IPCC are written by a team of authors who
are all selected experts in their fields. Each report is subject to a first review by
scientific experts and a second review by experts and governments.27 The first
IPCC assessment report was in 1990 published and subsequent reports were
published in 1995, 2001 and 2007. Each report has noted with increasing
conviction that global warming is taking place, and that it is due anthropogenic
causes and that it will have serious and far-reaching consequences.28
The reports of the IPCC deal with future climate changes based on scenarios of
future carbon emissions.29 There are a total of forty (40) scenarios that belong to
six scenario groups30 deriving from four scenario families, the A1 family, the A2
family, the B1 family and the B2 family. Each scenario family derives from a
narrative storyline which is a compound of different demographic, social,
economic, technological and environmental developments. The storylines
describe different worlds that consume different amounts of fossil fuel, and
therefore emit different levels of greenhouse gases into the atmosphere, based on
the kind of technology used and patterns of production and consumption.
For a number of reasons, the analyses in this report are not directly based upon
individual climate change scenarios. Firstly, the reports of the IPCC (WG III)
which are an important source of the analysis do not clearly distinguish clearly
27 For details see Procedures for the Preparation, Review, Acceptance, Adoption, Approval and
Publication of IPCC Reports 2003 from http://www.ipcc.ch/about/app-a.pdf access 20070416
28 As stated by the IPCC in 2007 “Warming of the climate system is unequivocal, as is now evident
from observations of increases in global average air and ocean temperatures, widespread melting
of snow and ice, and rising global mean sea level”. International Panel on Climate Change
Climate Change 2007: The Physical Science Basis Summary for Policymakers p.4
29 For the methodology used in these scenarios see IPCC 2000
30 These are A1FI, A1T, A1B, A2, B1 and B2 IPCC 2000:4
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between different scenarios in their descriptions of the effects of climate change
on natural and social systems. Second, in many cases the differences between the
emissions scenarios, e.g. in terms of temperature and precipitation, are very
difficult to translate into differences in political consequences. Instead the
analyses are based on the IPCC texts that refer to the qualitative effects of
climate change, primarily those of Working Group III, which in turn refer to
middle-range scenarios (A2). The differences between scenarios that assume
continued or even increased fossil fuel use, leading to a rapid increase in
emissions, and scenarios that assume a development characterised by, a more
modest increase (or seen in a long-term perspective, even a decrease) in fossil
fuel use that leads to a slower increase of the emission rates are accommodated in
the report in two ways: Firstly in the sub-sections ‘Consequences of mitigation –
adaptation measures’ in some regional analysis in Section 3 and secondly by
analysing the consequences of different scenarios in the Conclusions section.
The IPCC does not assign probabilities to the scenarios (all scenarios are treated
as equally sound) and nor does this report. Instead, our policy recommendations,
whether they occur in the studies on individual regions, in thematic studies (for
instance Section 4.6) or in the conclusions (section 5) are based on the
precautionary principle.31 This principle can briefly be said to operate on the
grounds that ‘…attention should be paid to potential threats and preventive
measures planned even when scientific evidence is not entirely conclusive32.’ In
laymen’s terms, the principle translates to the idea that if a risk is significantly
large, then the prudent choice is to prepare for it. We understand the
precautionary principle to be useful not only because of its long-standing
association with environmental issues but also because of its usefulness in
preparing for large-scale, high-intensity threats.
2.2.1
Non-linear Effects of Climate Change
Climate change is not only about global warming that proceeds in a linear
fashion. 33 The warming of the Earth's climate also entails the risk of several
events that are refered to as ‘tipping points’, ‘independent drivers’ or ‘nonlinearities’. They all have in common the fact that they have the ability to trigger
off further developments, in some cases an amplification of global warming and
31
For statements of this principles see e.g. The European Environment Agency 2001
See Woodford 2002
33
Schneider (2004) argues that more attention should be paid to the possibility of non-linear climate
change events and to potential irreversible effects and that policy-makers should avoid excessive
focus on linear projections since they give a misleading view of the full potential of climate
change.
32
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in some cases other ‘non-linear’ events. The most problematic aspect of the
‘independent drivers’ is that once triggered, they can amplify each other thus
producing a situation that measures undertaken by human societies can do little
to control or contain. It is difficult to ascribe probabilities to these events
occurring, but it is noteworthy that the history of the climate system shows that
the Earth's climate can change rapidly and abruptly.34 However, the difficulty in
making projections of non-linear events does not however, mean that these
events should not be taken seriously.35
It is not possible to outline in detail the consequences on international politics of
these events, because they are highly drastic and in some cases operate over a
long period of time. However, we found it necessary to deal with some of these
effects in order to convey a more comprehensive overview of climate change and
to stress that if these events are triggered then the likelihood of the more extreme
scenarios increases. As this likelihood increases, so does the likelihood of largescale territorial changes.
2.2.2
Deterioration of the West Antarctic Ice Sheet (WAIS)
Warming of the Southern Ocean has the potential to initiate an increasing loss of
ice from the WAIS. The WAIS contain the equivalent of about 6 metres of sea
level rise. Massive melting of the WAIS could alter ocean circulation and have
significant effects on weather. This is a long-term process but strong global
warming could spark it off by the end of this century.36
2.2.3
Thawing of Permafrost and Tundra
The warming of the Arctic will lead to a thawing of the permanently frozen
ground (permafrost). This could lead to the release of methane, a more powerful
greenhouse gas than carbon dioxide, as well as oxidation of peat. This process
could substantially amplify global warming since permafrost land contain at least
as much carbon as the present pool in the atmosphere. A further independent
driver effect of the ice melt in the Polar Regions is that albedo, reflection of the
suns rays, decreases. In layman's terms, ground covered by ice reflects heat into
the atmosphere while bare ground absorbs it, thereby increasing temperatures.
34
WBGU: 2007b:77, citing Ramsdorf 2002
WBGU 2007b:78
36
Scientific Expert Group on Climate Change 2007:22
35
42
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2.2.4
Weakening of the North Atlantic Current (thermohaline
circulation)
The melting of the Polar ice caps could cause a weakening of the thermohaline
circulation in the North Atlantic, often referred to as the Gulf Stream, due the
influx of fresh water. The risk of this occurring cannot be quantified but leading
experts estimate that the circulation is ‘very likely’ to be weakened, although not
halted during this century. The critical factor is how high the mean temperature
will become. A recent study shows that experts calculate that an increase of 3°C
above pre-industrial levels will lead to 10% risk of a weakening of the
thermohaline circulation. If temperatures were to rise by 5° C, half of the experts
consulted stated a risk of 20% or more while a third stated a risk of 50%.37 It is
very difficult to estimate the consequences of a shift in the ocean circulation but
the expected cooling of the North Atlantic area, particularly Europe, could be
offset by rising temperatures due to global warming. What is clear, however, is
that other effects, for example, consequences on food security and living
conditions in the North and the tropics could worsen, as a consequence of an
additional one-metre rise in sea level and shifts in precipitation patters in the
Tropics.38
2.3 Geopolitics and Political Geography
In the broadest sense, geography is the discipline that studies the interface
between natural and social systems, such as the economy, agriculture and city
planning to name but a few of the fields of human activity affected by adaptation
to climate change. The more specific interface between geography and politics is
in turn covered by the sub-discipline political geography and by its sibling and
sometimes rival, geopolitics. There are also other areas within the historical and
social sciences that deal with the connection between geography and political
events, for example the works of certain economic historians39 and the French
annales school40, but geopolitics remains the main source as well as the most
useful umbrella term for this kind of study. Since the task of this report is to chart
the winding trail from natural science to security politics, the itinerary sketched
above is the most expedient road to take.
37
WBGU 2007b:78
WBGU 2007b:78-79
39
For an example see Jones 2003.
40
The best known example is probably the works of Fernand Braudel.
See for example Braudel 1995
38
43
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The term geopolitics can be understood and employed in a number of different
meanings. It can denote a historical school of thought; a normative perspective,
principally on American foreign policy; the global level of world politics,
understood as the highest of ‘high politics’ as well as the most geographically
encompassing; and it can be understood as a perspective that grounds analyses of
security politics in a territorial dimension (i.e. the location of states) and that
accounts for the impact of geographical factors. It is in the two last senses that
the term is used in this report. Geopolitics in the sense of a particular domain of
international/security politics, that of global strategies, and climate change are
dealt with in a specific sub-section below. However, geopolitics in the sense of a
territorially grounded perspective on security and international politics rather
pervades analyses throughout the report.41 The next section outlines the
analytical framework centred on regions that is used to structure the subject
matter.
But what are the historical roots of the concept of geopolitics?42 And what
importance do climate factors have in it? The term geopolitics, or Geopolitik,
was coined by the Swedish political scientist Rudolf Kjellén.43 He defined it as
the theory of the state as a geographic-spatial phenomenon;44 the concept of a
state, according to Kjellén, presupposes some kind of territorial, geographically
existing entity.45 Thus, the geographical location of a state should, to a
substantial extent, determine its security policy and strategy. The fact that most
states have neighbours towards whom they need to relate – e.g. as friends or
enemies – is perhaps the simplest form of this condition.
The most renowned of the early geopolitical theorists is probably the British
geographer Sir Halford Mackinder. To Mackinder, although geography was only
one of several power bases for a state in world affairs, geographic location and
natural resources were paramount factors in determining both the power base and
the foreign policy of a certain country. In his view, the actual world balance of
41
Geopolitics in this sense is the study of geographical factors as a part of politics, primarily
international. This understanding is close to that of Parker (1998:5) who argues that geopolitics is
”the study of international relations from a spatial or geographical perspective”. Geopolitics does
not have to be understood as a school of thought or allegiance to a school of thought but can rather
be seen as a ‘mode of analysis, relating diversity in content and scale of geographical settings to
exercise of political power, and identifying spatial frameworks through which power flows’
(Cohen 2003:12).
42
Substantial parts of this subchapter are based on the discussion in Winnerstig 2000, ch. 4.
43
See e.g. Kjellén 1916. Kjellén was a Swede and a professor of Government at Uppsala University.
However, he was also a conservative member of the Swedish parliament and took, as such,
German-friendly positions; this is probably why he, wrongly, is thought of as a German in much of
the Anglo-Saxon literature on the subject of geopolitics; see e.g. Deudney 1997:95.
44
Kjellén 1916:39.
45
Kjellén 1916:44.
44
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political power at any given time was ‘the product, on the one hand, of
geographical conditions, both economic and strategic, and on the other hand, of
the relative number, virility, equipment, and organization of the competing
peoples.’46
Mackinder’s thinking was in many ways similar to realist theories of
international relations. Realism, a highly pluralist school of thought in the
discipline of international politics, has traditionally and about until the 1980s
been its dominant theory. It deals first and foremost with issues of power,
balances of power and international anarchy, i.e. the lack of a world government
that could provide for laws and law enforcement among nations.47 Closely
similar to Mackinder, the current, very prominent realist Kenneth Waltz argues
that the power of a state is dependent on ‘how [the state scores] on all of the
following items: size of population and territory, resource endowment, economic
capability, military strength, political stability and competence.’48
Nicholas Spykman, a Dutch-American professor of international relations at Yale
University, furthered the geopolitical approach to world affairs during the early
1940s. Although Waltz does not mention the works of Spykman in his own
writings, their views are strikingly similar. Spykman argued, without labeling
himself a realist, that international society is ‘a society without a central authority
to preserve law and order, and without an official agency to protect its
members.’49
Geopolitical theory has traditionally been used as part of, or a complement to,
realist analyses of international relations and politics. Since geopolitical concepts
often has clear-cut relevance for policy-makers – such as pointing out certain
areas of the world as being particularly geopolitically crucial – it has often been
regarded as more ‘policy relevant’ than realist theory proper, which can and has
been formulated as a very abstract theory.50
During the last 30 years or so, there has been a huge debate about the virtues and
shortcomings of realist theory in the discipline of international
relations/international politics. We will not go into this debate here, but instead
46
Mackinder 1904/1996:192.
For an in-depth presentation and analysis of different forms of realism,
see Winnerstig 2000, ch. 4.
48
Waltz 1979:131.
49
Spykman 1942:7. Cf. also ibid.:41: .In a world of international anarchy, foreign policy must aim
above all at the improvement or at least the preservation of the relative power position of the
state.’. Cf. Waltz 1959 ch. VI-VII and Waltz 1979.
50
For an example of the first form of usage, see Winnerstig 2000. For the most elaborated, abstract
form of (neo)realism, see Waltz 1979.
47
45
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focus on the linkage between climate factors and geopolitical theory. This will, in
its turn, enable us to draw conclusions about what hypotheses could be derived
from geopolitical theory if dramatic climate change occurs.
Climate factors form, in fact, a basic building bloc within geopolitical theory.
Mackinder, with the realist’s typical penchant for materialism and cynicism,
observed that the great wars of history “are the outcome, direct or indirect, of the
unequal growth of nations, [due to] the uneven distribution of fertility and
strategical opportunity upon the face of the globe.”51 Fertility, at least in terms of
agriculture, is obviously a highly climate-dependent issue and although
Mackinder – as most theoreticians of the early 20th century – did not elaborate
extensively on climate factors, they were still there.
Spykman explicitly set out to develop the geopolitical approach by modifying
and enhancing older geopolitical thinking, above all Mackinder’s theories.52 He
saw geopolitics as an analysis of the interconnection between realist theory and
geographical factors. In the international power struggles, Spykman regarded
geography, because of its permanency, as the most fundamental factor forming
foreign policy in an anarchic world.53
Spykman’s view of the role of geography was more nuanced than the views of
many other geopoliticians. He argued that in contrast to a mere geographical
approach, a geopolitical analysis must deal with a dynamic rather than a static
situation: geopolitical regions of the world are not determined by geography
alone, but also by the dynamics of the balance of power.54 Given these dynamics,
consisting of political and technological shifts, Spykman concluded that although
geographic facts will not change, their significance for foreign policy will.55
However, while it is well known that Spykman treated geography per se as a
factor of utmost importance for a state’s security strategy, the centrality of
climate factors in his thinking has largely been forgotten. In fact, the whole thrust
of Spykman’s geographical argument is to a large extent based on climate
factors:
51
Mackinder 1919/1996:1-3.
Spykman 1942:8, 446.
53
Spykman 1942:41.
54
Spykman 1944:6.
55
Spykman 1944:7.
52
46
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The geographic location of a state in the world is of basic importance in
defining its problems of security. It conditions and influences all other
factors for the reason that world locations determines the climatic zone
and thereby the economic structure, and regional location determines
potential enemies and perhaps even the limits of a state’s role in a system
of collective security.56
For Spykman, the power of a state was essentially a function of its military
power and the nature of its territorial base, i.e. geographical location and size.
Both the latter factors were, in his view, modified by two other most important
issues. In the first place, topography determines e.g. the ease or difficulty with
which one can export one’s goods or defend one’s borders. In the second place,
since climate factors affect transportation issues and set limits to agricultural
productions, the climate of a country “conditions the economic structure of the
state and thus, indirectly but unmistakably, its foreign policy.”57 The economyagriculture linkage was based on the importance of a temperate climate and
rainfall adequate to the production of wheat or rice. These crops, according to
Spykman, provide the agricultural basis for the power of any state, and a region
or country which lacks these elements ‘finds itself doomed to play a secondary
role in the power relations of the world’.58
This might sound a bit old-fashioned in today’s globalised world, where both
wheat and rice can be bought and imported with ease. But Spykman made a case
for climatic primacy in geopolitics that still contains interesting insights. He
excluded consciously as zones of power those areas whose climatic conditions –
especially in terms of agricultural conditions – were not suitable for the growth
of large populations and, subsequently, strong states. 59 In his proto-realist view,
strong states with a temperate climate enabling them to attract and feed large
populations, were obviously the movers and shakers of the world. Thus, he
concluded, ‘history is made in the temperate latitudes, and, because very little of
the land mass of the Southern Hemisphere lies in this zone, history is made in the
temperate latitudes of the Northern Hemisphere.’60 Spykman treated the same
areas that Mackinder found the most important in a similar way; Eurasia and
North America were to him, for a host of geopolitical and hence climatic reasons,
the strategically most important areas in the world.61
56
Spykman 1944:23.
Spykman 1944: 5.
58
Spykman 1944 28.
59
Spykman 1944:28.
60
Spykman 1942:42.
61
Spykman 1942:42, 98f.
57
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We may now draw a number of conclusions. In the first place, climate factors
played a very important but today largely forgotten role in the geopolitical
theorists of the early 20th century. Secondly, even if they – especially Spykman
– wanted to inject more dynamism in the geopolitical approach, they never
speculated in that most dynamic prospect of climate change; all of them took for
granted that the climate of a region or a country was virtually as stable as its
geography. One of the fundamental, key issues to explore in this report is thus
which consequences climate change – i.e. quite dramatic climate change – would
have for international geopolitics.
Some concepts inherited from geopolitics as a distinct body of theoretical
writings on international politics are employed in the report, albeit in modified
form. One such concept is that of ‘pivotal states’. In this report, the term denotes
a state whose regional importance is of such magnitude that changes in it will
have reverberations across the region. Daniel Esty has connected environmental
degradation to the notion of pivotal states. In his analysis the older concept of
pivotal states, states whose position may determine regional or even global
balances of power, is combined with an analysis of the effects that environmental
degradation may have on the stability of some states considered to be ‘pivots’.62
This report will focus on states that play important roles in their respective
regions and on how they may be affected by climate change. This subject is dealt
with in the regional studies below and in section 4.6 ‘International Interventions
in a World with A Changed Climate’.
The word ‘pivot’ may give a sense of determinism, but it is not used in this
strong causal sense in this report. It is rather used to denote a region-wide
influence that is sometimes connected to political agency, i.e. conscious political
acts by its leading politicians, and sometimes not, e.g. economic and cultural
influence or processes on micro- and meso-levels that cannot be easily controlled
by the political level. The notion of a pivotal state helps us to conceptualise that
certain states have stabilising and/or growth promoting effects on their
immediate regions if and when they are strong whereas their weakness may have
effects that destabilise and reduce economic growth in their regions.
2.3.1
Environmental Security and the Effects of Climate Change
Research within the field of ‘environmental security’ has focused on
investigating causal links between environmental change, primarily degradation,
and violent conflict, either in the form of full-scale wars or conflicts of lesser
intensity. To some extent, climate change has been included in the field, but
62
Esty 1999
48
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some important lessons may be drawn from research focusing exclusively on
environmental degradation. These concern the importance of state stability and
the importance of whether a region has a history of high conflict intensity or of
institutionalised cooperation in determining its proneness to violent conflict as a
resolution of issues of environmental and resource stress.
A point of debate has been whether environmental degradation itself should be
conceptually linked to security and conflict studies of whether they should be
kept apart? In an early and oft-quoted article, Daniel Deudney has answered in
the negative whereas others have answered in the affirmative. This report takes
the stand that although no a priori link should be assumed all societies are
grounded in their territory and this ‘groundedness’ entails a dependence on
natural resources. However, this dependence varies greatly between societies, as
do their means of dealing with issues of scarcity and dependence internal to the
territory and in relation to their neighbours. Environmental security debates
matter to the geopolitics of climate change since in some cases climate change
may lead to a degradation of eco-systems and human habitats. Furthermore,
some effects of a warmer climate and changed precipitation patters, such as
droughts, floods, torrential rains and storms may seriously threaten agriculture in
some parts of the world. Threats to agriculture, horticulture, livestock and
fisheries may weaken the resource base of local communities or even entire
societies. These processes and their relation to violent conflict have been studied
within the field of environmental security which is why the findings of the
principal research projects are of relevance to this report.
According to Homer-Dixon, the leading authority on the linkage between
environmental degradation and violent conflict, disputes concerning
environmental degradation are more likely to lead to ‘…ethnic clashes caused by
migration and social cleavages caused by environmental scarcity…[and] civil
strife caused by environmental scarcity affecting economic activity, livelihood,
elite behaviour and state responses’ than to inter-state wars.63 The research
conducted by the ENCOP team under Gunther Baechler support Homer-Dixon’s
argument. The ENCOP concludes that violent conflict when a combination of the
following five situations occurs:
1. Inevitable environmental conditions where a group is dependent on
degraded resources for which there is no substitute.
2. Scarcity of regulatory mechanisms and poor state performance.
63
Dalby 2002:47
49
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3. Instrumentalizing the environment by a dominant group so that
environmental discrimination becomes an ideological issue of group
identification.
4. Alliance-building opportunities.
5. Spillovers from historic conflicts.64
Clearly, as argued in the introduction section, both existing state and inter-state
structures are of fundamental importance to whether changes in the natural
environment are conducive to violent conflict. This insight also guides the
analytical perspective as well as the policy recommendations of this report,
which are summarised in Section 5.
Even though Homer-Dixon’s research and the studies carried out by the ENCOP
team seems to indicate that environmental degradation may not be likely to
determine or directly lead to interstate wars or other large-scale conflicts, it may
still be important in the future. For instance, it may play a large part in
destabilising or even fragmenting states that are exposed, which in turn may lead
to warlordism, the provision of safe havens to terrorists or organised criminal
groups, facilitate WMD proliferation or, in the worst cases, lead to a new
geostrategic landscape in certain regions.65 Fears of destabilisation may apply not
only to very resource-poor states but also to more developed states with a
potential for unrest or instability such as Egypt or Nigeria.
The debate on whether the environment should be linked to security as
traditionally understood has been the subject of controversy since the 1970s
when the connection was first advocated by Lester Brown.66 The current debate
within International Relations began in 1990 when Daniel Deudney published his
article ‘The case against linking environmental degradation and national
security’.67 The opposing position has been taken by radical attempts to broaden
the concept of (national) security to include everything related to human wellbeing. The principal proponent of this perspective is Norman Myers.68 In a
similar vein, although in less encompassing terms, Homer-Dixon & Levy have
advocated linking environmental degradation and security in order to gain
support for an environmentalist agenda.69 The strategy of ‘securitizing’ the
64
Dalby 2002:52-53
The ENCOP project concludes that ‘acute conflicts do not arise along the great fault line between
North and South, but where climate change contributes to the collapse of local rural structures
and regional political authorities’. Cited in Dalby 2002:53
66
Brown 1970
67
Deudney 1991
68
Myers 1993
69
Homer-Dixon & Levy 1995/96
65
50
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environment in order to gain a greater acceptance of the urgency of
environmental problems has been criticised by various authors, partly on the
grounds that it frames environmental issues in a logic that is not its own and
partly on scholarly grounds.70
Is there a substantial link between climate change and environmental
degradation, other than the possible consequences mentioned above? Large-scale
shifts in terrain may have important military and political consequences, on
strategic as well as operational levels. The former, such as the opening of the
Arctic to shipping, would have an impact on the political level. Effects of the
latter kind would rather be transformation of permafrost to marshes and the
disappearance of winter terrain in Arctic and Alpine areas. Their implications
would perhaps not be so much policy-driving but rather have consequences for
military practices, exercises, and equipment requirements.
2.4 A Region-Based Approach
This report uses the regions, or regional security complexes (RSC) outlined by
Buzan & Wæver (2004) as the basic matrix for understanding the world and its
regions. The theory they develop, regional security complex theory (RSCT), is
useful for the purposes of the present report for four reasons:
1. It provides a tool to dissect a material that otherwise would be too large to
handle.
2. RSCT constructs regions on the basis of the interactions of states within the
field of security policy and since this is the interest of the report this
perspective is a better angle than other ways of constructing regions, e.g. as
whole continents or as climatic zones.
3. RSCT provides a framework for understanding how different regions and
sub-regions are connected with each other as well as with the global level of
politics. This is particularly relevant in order to begin to ascertain which
consequences of climate change may be limited to certain regions, which
ones will have inter-regional consequences and which ones will influence
global politics.
70
See Brock 1997, Lipschutz 1997 and Matthew 1997
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4. The security interactions of most states take place with their neighbours,
whether in the form of inter-state conflict or in the form of part of the causes
of internal conflict.71
As the previous section demonstrated, a central concern of political geography
and geopolitics is to emphasise that states are territorially located and that their
location in relation to geographical factors and to social factors, i.e. other states,
are of fundamental consequence for their politics. Because of this territorial
embedding, the closest environment of states must be taken into account and
hence RSCT, as its founders emphasise, is reminiscent of geopolitics and ‘akin to
a security version of much political geography’.72 However, by stressing the
paramount importance of the regional level to most states it differs from the
geopolitical tradition which stresses the global level, something which is
obviously highly relevant to US strategic consideration. In a global perspective
the US is an anomaly since it is the only actor with a global outlook.
The emphasis on regional security patterns does not preclude analyses of politics
on the global level, the original concern of the geopolitical tradition. The regional
and global levels of analysis are combined firstly by assessing the eventual
global effects of climate change and climate change consequences for each
region, secondly by analysing global politics separately at the end of each subsection, and thirdly by analysing some issues of global relevance in the section
on themes touched by climate change (Section 4). The analysis of consequences
for global politics in each sub-section naturally involves an emphasis on great
power and superpower politics towards the region. The following paragraphs
outline the basic structure and presuppositions of the theory and discuss its
relationship to the subject matter at hand.
The basic unit of the theory is the Regional Security Complex (RCS). A security
region is defined by its members having more security interactions and concerns
with each other than with other actors.73 The borders between regions are most
often geographic, either in the form of natural obstacles to frequent interaction,
such as seas, deserts or mountain chains, or in the form of states that do not
belong to any region, but rather isolate them. Buzan & Wæver call the latter
insulators or buffers. Although cultural factors are intertwined in some regions,
they do not form the basis of these regions, but security interaction does.
71
Brown (1996:575) argues that elite-level causes in neighbouring countries, i.e. the actions of the
leaders of neighbouring countries play a much more prominent role in internal conflicts than is
usually recognised. See also p.600
72
Buzan & Waever 2004.69
73
Buzan & Wæver 2000:41-43
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Some RSC are divided into sub-complexes whose members, although connected
to other actors within the same RSC, have more dealings with each other. A not
yet fully developed RSC, in the sense that not all the countries that belong to it
do not have well-developed relations with all other actors, is called a protocomplex. One example is the countries of the Horn of Africa (Djibouti, Eritrea,
Ethiopia, Somalia and Sudan). The security concerns of these countries are
connected to each other but every single member does not sustain diplomatic
relations with every other member, which is a basic condition of an RSC.74
Not all complexes are characterised by the same kind of political relations and in
order to accommodate that to the theory Buzan & Wæver propose a tripartite
classification of conflict formation, security regime and security community.75
The three terms denote a descending scale of enmity, mistrust and potential for
violent conflict within the region. The factors that determine political relations
between the states of a region are of course subject to change over time and one
of the main purposes of this report is to ascertain whether and in what way
climate change can contribute to or lay the ground for changes in political
relations in different parts of the world.
Security regions also differ in respect to their internal structure. Basically a RSC
can be either standard or centred.76 A standard RSC contains two or more states
and its members do not act on a global level. A centred RSC means that the
region is centred on a single state, who dominate the region and the politics of
which form an implicit or explicit point of reference for all other states. The state
in question can either be a superpower, e.g. the United States in North America,
or a great power on a global level, e.g. Russia in the CIS, or a regional power that
does not play a global role, e.g. South Africa in the Southern African RSC. RSCs
can change not only in respect to the conflict-intensity of political relations but
also in respect to structure. These changes can either occur in respect to its
internal structure or in terms of its external boundaries. In the latter case, the
RSC can either contract or expand, which would change its membership and
probably its political relations as well. Regions are not impermeable but their
boundaries can be, and are, crossed by different kinds of security interactions. In
this context it is sufficient to note that boundary-crossing can be made either by
neighbouring states or by penetration by great powers operating on a global
level.
Buzan & Wæver’s construction of regions may be objectionable to some, either
in the basic structure of the region or in the particular composition of a given
74
Such patterns are what Scott 2003 calls “multilinear systems of communication”
Buzan & Wæver 2000: 53-54
76
Buzan & Wæver 2000:55
75
53
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region. It is, however, not an issue of great importance for the present report
since developing the theory is not one of its ends. The framework of RSC is used
as a base and deviations from it will be dealt with pragmatically. As stated in the
Introduction section, an important aim of this report is to try to ascertain what
effects climate change (and its socio-political consequences) in a certain region
may have for other regions or at a global level. Therefore the link between the
regional and the global level must be dealt with.
Very few actors are active on the global level of politics and in terms of the
framework used in this report they are either superpowers or great powers. The
principal difference between the two types, apart from material capabilities, is
that a superpower is engaged to varying degrees in all regions of the world and
that it matters to the security calculations of actors in all regions of the world.
Great powers, on the other hand, are not relevant in or to all other regions but
certainly to some regions outside their own. Today there is only a single
superpower, the United States; whereas today’s great powers are France/
Germany/UK-EU, Russia, China and Japan.77 In any region there will be one or
more regional powers, actors who are important to that region but whose
relevance, actions and capacities do not transcend its boundaries.78 Examples are
Brazil, Egypt, India, Nigeria, and South Africa in their respective regions.
The relevance of super- and great powers to this report and to any study on
climate change are partly due to their greater weight in world politics in general
and partly due to their importance to the international politics of mitigation and
adaptation. Section 2.4. below outlines the connection between regional and
global levels of analysis.
To conclude, the following regions are used in this report: The Middle Eastern
RSC, subdivided into the Maghreb, Levant and Gulf subcomplexes; Sub-Saharan
Africa, subdivided into the Southern African RSC, the Central African RSC and
the West-African and Horn proto-complexes; the West European great power
subcomplex (centred on the EU), the Balkan subcomplex is omitted in this report
since it can be assumed to have been absorbed by the EU through the process of
enlargement within the coming decade; the post-Soviet great power RSC is not
dealt with separately but subsumed in the thematic section on the Arctic; the
South American RSC, subdivided into the Andean North subcomplex and the
Southern Cone subcomplex; and the Asian supercomplex, subdivided into the
South Asian RSC, the East Asian RSC, subdivided into the Northeast Asian and
Southeast Asian subcomplexes. North America is omitted from this report due to
77
78
Buzan & Wæver 2000: 34-36
Buzan & Wæver 2000: 37
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the special characteristics of the region from a security point of view. It is
militarily completely dominated by the United States and it is currently enjoying
peaceful relations with its neighbours Canada and Mexico. In the short- and
medium term it is very difficult to envisage how this could change, with or
without climate change. This is not to say that security and stability in North
America could not be affected by climate change in the long term, but that would
have to be dealt with in a separate study.79
Two regions of great future importance are the Polar Regions, particularly the
Arctic. It is not a regional security complex today and it will probably not take
that form in the future due to the absence of significant landmass and therefore of
independent states. However, due to its geostrategic importance and its natural
resources which climate change might enable to be tapped, it will be included in
the regional analyses.
2.5 Paths to Violent Conflict under Conditions
of Climate Change
This section deals with two things: How states may react to debilitating
pressures, which in this report is conceptualised as a loss of ‘interaction
capacity’, and four typical ways that pressures induced by climate change may
facilitate or even lead to large-scale conflict. In the first instance, climate change
events act as permissive causes, whereas in the second, they act as proximate
causes.
2.5.1
Loss of State Interaction Capacity due to Climate Change
International politics do not only change due to shifts in relations between states,
either on a global or a regional level, but can also do so due to changes within
states. In the present context, an important question is whether climate change
will weaken states in different parts of the world to such a degree that they will
not pursue that same kind of international politics as before, either due to
unwillingness or due to incapacity. Therefore the concept of interaction capacity
is helpful for the purposes of this study.80 In this context it is used to denote the
capacity of a state to act, not only towards other organisations but also towards
natural systems. In this sense it is an indication of the strength or weakness of a
state, a strong state has a high interaction capacity whereas a weak state has a
79
Several studies have been made on the impact of climate change on North America. See for
example Busby 2007
80
See Buzan & Little 2000.
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low capacity. By focusing on the state’s capacity to carry out decisions taken by
its legislature, the term replaces the dichotomy ‘strong-weak’ which tends to be
rather unspecific.
• The state in question ‘scales down’ on international action (or its capacity for
long-range power projection decreases) but it is still able to devote sufficient
resources to controlling its territory. This possibility is most likely to occur in
advanced societies with strongly developed ties between ‘society’ and the
state.
• The resources of the state to conduct international actions and its capacity to
act internally decrease. This does not necessarily mean less activity, but it can
involve a situation where other organisations (political parties, militias etc.)
take on tasks previously covered by the state and possibly begin to act across
state borders as well. In most such cases, the new actors do not have the same
interaction capacity and possibility to mobilise resources as the state
previously had.
• The state ‘scales down’ on domestic activities and on international
engagements, most likely at first in all areas except security functions, but
eventually these (e.g. law and order) may be affected in some areas. This
means that the state apparatus separates itself from society but possibly
retains the capacity to interact with other states, despite having serious
difficulties in controlling its own territory or actually having no ambition to
do so. This situation describes the situation in some African countries today
and it is a possibility in other countries where the state apparatus and society
are to a high degree decoupled from each other. Since climate change may in
many cases, especially in the more severe scenarios, bring considerable stress
on states and societies, the three possible outcomes of a weakened state
interaction capacity are closely considered in all regions in this report.
2.5.2
The Climate is not a Conflict Protagonist but Protagonists
may exploit the Climate
Conflicts can certainly arise in connection with climate change-induced events
but, as stressed in the beginning and throughout this report, whether they actually
do so is up to politicians and other actors. It is strongly recommended that we
avoid the ‘no-blame’ view so common in analyses of internal conflicts, replete
with vague assumptions of automatic processes and metaphors from other fields
–such as ‘spill-over’, ‘contagion’, or ‘diffusion’ – when analysing the security
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consequences of climate change.81 A similar way of explaining conflicts that
reduces political actors to instruments of structures is sometimes found in studies
of ‘ethnic’ conflicts. As noted by Rachel Bronson: ‘Ethnic and religious diversity
does not in and of itself precipitate domestic conflict. In weak, undemocratic
states, however, the likelihood of conflict increases’.82 In both cases, a multitude
of ethnic groups with a conflictual history or changes in natural climate systems
can serve as facilitating conditions or, in retrospect, as permissive causes. In
order to locate proximate causes, however, one must look at actors and in
particular at the role of the state. Despite these caveats, a number of situations
can be imagined under which climate change is used as a proximate cause to
serve the interests of political actors:
1. Internal conflicts could arise when political actors seek to exploit questions
of resource allocation (e.g. funds, territory, or food) or inter-group tensions
in connection with adverse consequences of climate change. This could
happen either with regard to groups that are already present in the country or
with regard to migrants. In connection with climate change-induced
migration the threat of conflict stems not as much from migrants per se as
from politicians seeking to exploit the ‘ethnic card’ in order to buttress their
own (faltering) legitimacy within constituencies. They might use the spectre
or reality of climate-induced migration to instigate conflict at a sub-state or
inter-state level. This type of politician could either be a head of state or
government seeking to increase the legitimacy of his/her regime or an
ascendant leader of an ethnic group. An analogous example of this kind of
conflict was Slobodan Milosevic in Yugoslavia/Serbia, who created and
fuelled inter-ethnic conflict to gain power during the 1980s. It should be
stressed that sharp inequalities in a society, with regard to available
resources and also to those most severely affected by crises and natural
disasters, can be a strong permissive cause of this kind of political
mobilisation. Some effects of climate change could sharpen socio-economic
inequalities in countries that are already characterised by deep divisions.
2. A country stricken by the consequences of climate change could be
imperilled by politicians in neighbouring countries seeking to exploit its
weakness. Such exploitation could take many forms, ‘intervention’,
subversion, through support to clients in the stricken state, or outright
invasion –which may well be clothed in terms of ‘intervention’. An
analogous example of this type of conflict would be the wars in Zaire/Congo
in 1998-2004, when neighbouring countries intervened out of a number of
motives, not least economic considerations.
81
82
See Brown 1996
Bronson 1996:212
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3. A second interstate type of conflict could be conflict over resources or land.
If a country’s resources have been depleted or are in danger of becoming so
or if important parts of its territory become unviable it could then seek to
compensate itself by attempting to seize territory from its neighbours. This
scenario is reminiscent of certain conflicts in Europe until the end of 1945.
The typical example would be the resource-driven wars of 1931-45.
However, it must be stressed that the road to conditions resembling those
prior to 1945 would be quite complex, in any case in the West and the rest of
the developed/industrial world. The preconditions for such a development to
occur are as follows:
Climate change is a gradual process that takes place over a relatively long
period of time and human societies can, adjust up to a point. For the
hypothesis of resource-wars to be valid it would necessitate political leaders
being able to make complex cost-benefit calculations over a relatively long
time in order to determine their breaking-points beyond which their countries
would require new territory. If a state were to launch a war for resources or
for new Lebensraum, then it would have to time this aggression before its
interaction capacity became too diminished. For such a course of action to be
plausible, a great deal of foresight and planning would have to be necessary.
However, in this respect perceptions will matter greatly.83 The belief of a
country’s leadership that the survival of the state or of the nation is
threatened by the degradation of its territory and that it can do something
about it by invading one or several neighbours could be more important than
any rational calculus. For such beliefs to determine state policies, however, a
number of conditions have to be in place. First, it requires a paradigm under
which the state apparatus is responsible for the national economy and is
obliged and ready to go to considerable lengths in order support it. In the
West and elsewhere in the developed/industrial world the dominant trends
about the relationship between state, society and the economy would have to
change considerably given the prevailing thinking on the desirability of
scaling back the role of the state in managing the economy.84
A second precondition would be that national and international market
mechanisms for procuring resources and foodstuffs would have broken down
or begun to break down in a serious way. Such a development could entail a
reversal to a situation in which countries are more autarchic and the state, not
the market, has the primary responsibility for managing the economy. These
two conditions were in place during the economic depression of the later
1920s and 1930s. World War II and its preliminaries (e.g. Japan’s war in
China from 1931) were characterised by struggle over industrial raw
83
84
Concerning the ‘security dilemma’ see Jervis 1976
The literature on the current re-configuration of the state-economy nexus away from the tight
coupling of ‘high modernity’ is vast. Examples that can serve to summarise the main arguments
are: Cerny 1995, Bauman, 2000 and Elliott 2007
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materials and land. However, the aggressions by Nazi Germany, Imperial
Japan and Soviet Russia cannot be explained only by their perceived need to
secure raw materials and territory. Their respective ideologies of racial or
ideological superiority were motivations in themselves but these ideologies,
together with the character of the international system at the time, played a
major role in shaping perceptions about scarcity that only warfare could
address. Overall, a number of factors would have to change in order for
resource wars to become a major feature of international life. An important
factor that could, on its own, contribute decisively to such a development
would be a massive change in the global economic system. In this respect the
warnings of the Stern Review are particularly worrisome. It argues that the
economic costs of not mitigating climate change ‘…could create risks of
major disruption to economic and social activity, on a scale similar to those
associated with the great wars and the economic depression of the first half
of the 20th century’.85 Such a development with wide-spread failure of
national and international market economies might constitute important
permissive cause for a resurgence of ‘military mercantilism’
4. Subsistence conflicts.86 In particular contexts, such as when groups are very
close to the means of their subsistence (e.g. farming, pastoralism) and
possess the means of violence, or even informal or formal authority to use
violence, groups may come into conflict over scarce resources of arable or
grazing land. Such conflicts could occur in situations where an equilibrium
between groups is disrupted by e.g. drought, or the balance between groups
is changed due to the introduction of new groups in the territory by
movements of migrants. The importance of particular permissive causes in
such conflicts should be underlined. One important permissive cause could
be that the antagonistic groups are subsistence economies, with very limited
margins and capacities for absorption and adaptation to change. Another is
the lack of arbitration mechanisms and absence of state institutions to
facilitate adaptation, mediation or even to pacify the antagonists in the
conflict. An example of a conflict where these elements are present is the
current (2007) situation in Darfur, Sudan.
Thus, when discussing conflicts in the context of climate change, the most
important proximate causes of conflicts may be the presence of politicians who
want to exploit the situation or the absence of politicians who make conscious
choices to avoid conflict by addressing socio-economic hardships resulting from
climate change. Climate change effects can influence the permissive causes that
enable such developments. However, it needs to be underlined that these
connections, except in the type referred to here as ‘subsistence conflicts,’ are
85
86
Stern Review 2007:vi
For a full expatiation see Homer-Dixon 1991:73-75
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mediated by other sets of permissive causes, e.g. the economic system and/or
conscious political actions.
2.5.3
Non-Climate Factors in the Analyses
‘Climate’ or the climate system cannot be isolated in order to ascertain whether
this particular variable causes particular outcomes. Changes in the earth’s climate
system entail a range of changes in other natural systems, so therefore a number
of other factors enter into the analysis. These projected future changes are
included in many cases in the IPCC 2007 scenarios. A (geo)political framework
cannot be imposed directly on this level but must include other factors that either
put a range of societies and states under stress, such as environmental
degradation, or change them, such as urbanisation and demographic changes.
All indications point to increasing urbanisation of the world’s population. By
2036, 60% of the world’s population will be living in urban areas and in 2050 the
figure will be even higher.87 Urbanisation matters because it places stress on
societies for a number of reasons:
1. Urban settlement in many parts of the Third World tend to result in a
proliferation of shanty towns and unplanned settlements – in less technical
jargon –, slums. This reduces governments’ chances of control and places a
number of people under economic, sanitary and ecological strain. Judging by
the current proliferation of armed gangs in Brazil’s favelas, impoverishment
may breed alienation from the state and in some cases foster unrest or even
insurgency.
2. Urbanisation in the above sense challenges the resources of the national
economy, leading to the possible weakening of many states.
3. Urbanisation leads to increased environmental strain, with possibly adverse
consequences for food security. The world’s increasing urbanization also has
military implications since the battlefields of 2050 may to an even larger
extent comprise dense urban areas.88
Demographic change in simple terms means an ageing population in Europe,
North America and Japan and populations of increasing youth in developing
countries.89 Demography matters for two reasons, internal stability and relations
of power between states. It should be noted that demographic changes in the
sense of growing or decreasing populations may have implications for relations
87
DCDC 2007:9
As pointed out in a previous report from FOI Bogland, Frelin, Henningsson & Lilja 2006:37
89
DCDC 2007:6-9
88
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between states as they can be perceived as signs of increases or decreases in state
power.
Many other factors which will be very important in determining the shape of the
world over the coming fifty years are not dealt with in detail in the analyses
below because their complexity would stand in the way of the principal ambition
of the report; to provide a clear and concise framework for understanding the
plausibility span of climate change and conflicts. Examples of such factors are
economic development, global as well as regional, and the future status of China
and India.
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3 Regional Analyses
3.1 Introduction
This section deals with geopolitical changes in the security regions dealt with in
the previous section that may occur as a result of climate change. One aim is to
ascertain differences in conflicts, tensions and problems under different climate
change scenarios. In some cases one is forced to conclude that the same kind of
problems may occur under different scenarios but, most probably, to different
degrees. Such points certainly call for further research.
Before moving on, two caveats are in order. Firstly, some aspects of climate
change will inevitably cut across political regions. One example is the issue of
the river Nile, which affects countries in the Levant subcomplex as well as the
Horn protocomplex. Following the preconditions set out by RSCT, the political
effects are dealt with separately in each region. However, the description of the
natural phenomena that affect many regions, e.g. the drying up of the Nile,
cannot be presented in detail for each region, for reasons of scope and
readability. Therefore, a phenomenon of this kind is extensively dealt with the
first time it is encountered in the text and, on subsequent mentions, crossreference is made back to the initial description.
Secondly, in a report of this scope all countries in a region cannot be dealt with
to the same extent but some selection must be made. Here this selection was
based on the importance of a country to regional dynamics (economic, political
and security) and to global politics. An example of the former kind of selection is
the greater importance of Egypt and Israel compared with Jordan and Lebanon.
An example of the latter is the greater importance of the Maghreb to the Southern
flank of the EU than any of the South American regions.
3.2 The Security Regions of the World and
Climate Change
3.2.1
Sub-Saharan Africa
Introduction
This sub-section deals with the effects of climate change on the security
interactions in sub-Saharan Africa and is organised in the following way. First,
some preconditions of the argument are introduced which pertain to the general
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conditions of security politics in these parts of the world. These are the particular
nature of the state in many parts of Africa and the nature of international politics
in the regions of the continent. Thereafter some general arguments are presented,
from which two different hypotheses of how security interactions can be affected
by climate change are later derived. The first postulates that climate change may
strengthen tendencies towards dissolution of states and societies, whereas the
second postulates that the state layer could actually be strengthened under
conditions of climate change. The two hypotheses are not mutually exclusive but
they can apply to different countries or possibly, a scenario could be imagined
where both occur, but in sequence. After this introductory part, analyses of the
regions (the Southern African RSC, the Central African RSC, the West African
proto-complex and the Horn proto-complex) are presented.90 There follows an
analysis of the global consequences of these possible developments in the
regions of Africa and an analysis of possible conflicts arising from mitigation
and adaptation measures.
Preliminaries
Certain reports have connected climate change in sub-Saharan Africa (hereafter
Africa) with an accelerated condition of insecurity and conflict.91 The
combination of high exposure to the natural events of climate change, low
resources for adaptation, fragmented societies and conflict-ridden histories that
we can foresee for many parts of Africa seem to make these assumptions
probable. In the wider debate such prognoses for Africa have been very
influential since (and due to) Robert Kaplan’s evocative article (1994) and book
(2000) ‘The Coming Anarchy’. A systematic inquiry into this connection must,
however, carefully investigate a number of questions, not least of which is the
contemporary situation in Africa’s regions. The preliminary factors we need to
discuss are
1. The state in Africa
2. International relations in the regions of Africa and
3. The international environment.
The biggest intellectual puzzle in this regard concerns the position of the state in
security affairs in Africa. Two moot questions are whether conflict will intensify
90
For another division of Africa into regions, although not explicitly along the lines of security
interaction see Chazan, Lewis, Mortimer, Rothchild, & Stedman 1999:362-63
91
CNA 2007:22 and Beckett 2007 an example of this train of thought in the media, see TIME
magazine’s attribution of the conflict in Darfur to climate change. TIME magazine Tuesday,
Jul.31, 2007 http://www.time.com access 20070801
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and whether this will take place between or within states. Any arguments about
the future of the security situation in the various African regions, with or without
inclusion of climate change in the equation must, however, proceed from an
adequate understanding of the African state, international relations in Africa and
of the various cross-border inactions with bearing on security concerns.
Firstly turning to the issue of the state in Africa: States in Africa are not only
weak, they are also in many cases of a different kind than in the North. Not only
do states sometimes lack the means to address problems of their populations, but
they also lack interest in doing so.92 Due to the highly personalised nature of
statehood in Africa it sometimes makes more sense to talk about regimes rather
than states.93 Although the states are externally recognised by the United
Nations, by the African Union (AU) as well as in the international system;
internally they function very differently from states in the North. The state
apparatus is in many cases decoupled to a very large degree from other
organisations within the territory, which we would usually call ‘civil society’.
Instead it is a coercive-intensive apparatus of resource extraction and exploitation
for the benefit of certain groups within the territory: clans, tribes or other
networks.94 However, because of the short history of the post-colonial state in
Africa it is misleading to talk about ‘state capture’.95 Although the term conveys
very similar phenomena, namely the control and use of the state apparatus by
groups or networks that do not relate to the rest of society in a polity-like way,
unlike in e.g. Central Asia, Russia or Ukraine, in many parts of Africa, there was
never a neutral state that could be captured. Instead, patrimonial relations became
embedded within the state structures from their very inception during
decolonialisation. However, the state in many African countries became a prize
for zero-sum competition between different groups and networks because it
offered an ideal vehicle for exploitation and particularistic enrichment.96 Since
the end of the Cold War, this predatory, post-political pattern of actions by armed
groups, initiated by state regimes has also spread to sub-state actors.97
Understanding this regime- and predatory nature of the state in Africa enables us
to discern the conflict dynamics in a clearer fashion.
92
Buzan & Wæver 2004:226
Buzan & Wæver 2004:
94
This is a widely shared view among scholars of contemporary Africa, for an overview see Howe
2001:10-11 For the term “coercion-intensive” see Tilly 1992
95
See for example Kaufmann, Jones, and Hellman 2000
96
Howe 2001:35-40, 43-44; Stedman 1996:242-43
97
Howe 2001:88-92 and Kaldor 2006
93
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The conceptual pair ‘integrated’ versus ‘differentiated’ can in some aspects
replace the dichotomy between ‘strong’ and ‘weak’ states. For instance, the state
regime of a particular country may be strong, its scope of action limited and
substantially decoupled from most (but not all) groups existing in the country’s
territory. Such a state regime is usually coupled to some groups in a network of
patron-client relationships.
Therefore, we now turn to the second point, international relations in Africa: An
understanding of the particular character of the state is necessary if one wants to
understand the particular dynamics of African international relations. Although
the state in certain respect is quite weak in many parts of Africa, organisations on
the regional level have been strong. At an early stage of decolonialisation, the
OAU pre-empted inter-state warfare by ‘institutionalising the rule that there
would be no forceful changing of the postcolonial boundaries.98
The weakness of the states in Africa, but also a compact between the ruling
regimes of the African states to respect each other’s external sovereignty has
served to keep violence restricted to a sub-state level, in the form of internal
coercion, insurgencies/insurrections, but also subversion and guerrilla
activities.99 Due to the prevailing structure of African states and societies, the
ruling elite have hitherto had little to gain from embroiling themselves in external
conflicts, not least because it would risk weakening them in relation to domestic
contenders. Any increase in the level of inter-state conflict or other kinds of
security interaction would probably have to be preceded by changes in the
character of the African states and thereby of the international system in Africa.
There are, as always, exceptions to the general trend that conflicts do not occur
on an inter-state level. An important example is what has been called Africa’s
first ‘world war’, the wars that ravaged Zaire/Congo between 1998 and 2003,
during which between 3.1 and 4.7 million people were killed and implicated the
forces of Congo (Kinshasa), Angola, Namibia, Chad, Zimbabwe, Uganda, and
Rwanda along with various rebel fractions.100 Conflicts, sometimes by proxy
between Angola and Zaire/Congo occurred with some frequency in the 1970s.101
98
Buzan & Wæver 2004:222 Cf. Article 3 b) of the OAU Charter ‘The Union shall function in
accordance with the following principles: … defend the sovereignty, territorial integrity and
independence of its Member States;’from OAU 2007 See also Chazan et al 1999:362 & 384
Stedman’s (1999:240) caution that although the OAU’s emphasis on preservation of colonial
borders has contributed to the relatively low degree of inter-state wars, it was a recipe for internal
instability in many parts of Africa.
99
Howe 2001:47
100
Black 2005
101
Chazan et.al. 1999:389-90 See Stedman 1996:246 for the basic dynamics of Angola and Zaire’s
mutual conflict by proxy.
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Another is the recurrent inter-state wars taking place between Ethiopia and
Somalia (1978-79) and between Ethiopia and Eritrea (1998-2000) on the Horn of
Africa. It should also be noted that outside intervention in domestic unrest and
conflicts is fairly common.102
The third point relates to the nature of external penetration of the region. An
external mechanism concerns outside penetration and the funding of state
regimes by the selling of natural resources (diamonds, oil, wood, minerals). This
can proceed uninterrupted by climate change and is rather determined by the
demand for such resources on global markets. There is no direct reason why
these processes would have implications for security politics or security
interactions since under the current economic paradigm of free trade they are the
subject of international trade policies rather than, as in the nineteenth century
colonial paradigm, security politics.
Buzan & Wæver state that ‘security interaction in Africa is generated more by
weakness than by strength, as when imploding states inflict spill-over on their
neighbours.’103 This explanation explains the security dynamic of African
regions firstly by reference to the lack of an effective monopoly of violence in
certain countries which accounts for the non-pacified nature of their territories.
Secondly, it denotes the weak capacities of many African countries to uphold
their external sovereignty, while thirdly it related to the artificiality of many state
borders.
However, the great differences between African states and societies must be
taken into account before any serious attempt to gauge the security impacts of
climate change can be made.104 There are great differences between the relatively
strong and integrated states of South Africa, Namibia, Tanzania and Botswana on
the one hand and the weak and loosely coupled states of Chad, Sierra Leone and
DR Congo on the other. Another category can be formed of the states whose
regimes possess large armed forces but nevertheless are not as integrated or do
not have the same breadth of internal capabilities as South Africa. In this
category we could place Nigeria, Uganda, Zimbabwe and Angola.
The first general argument of this section is that transformation of security
structures in Africa is unlikely due to climate change alone. The following are
important conditions that have to be altered in order for the security dynamic in
the regions of Africa to be fundamentally changed.
1. Changes in state-society relations.
102
Buzan & Wæver 2004:229
Buzan & Wæver 2004:229
104
A point also made by Howe 2001:3 See also Stedman:1996:236-37
103
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2. Changes in the structure of African international relations.
3. Changes in the wider international environment. More likely than changes in
these three factors is continuation and reinforcement of existing dynamics.
Nevertheless, these are sufficiently complex to enable a wide variety of
developments. Two major pathways are described below on the basis of an
application of the argument that climate change affects the interaction
capacity of states and societies.
The second general argument of this section is that climate change will weaken
the interaction capacity of many organisations, state regimes as well as sub-state
actors and groups. The question that divides the two hypotheses below is where
this degradation will fall, state or sub-state level.105 The regional consequences of
the two different developments also differ.
The first hypothesis is that climate change will strengthen tendencies towards
dissolution of states and societies. The argument that droughts, famines, floods
etc. may lead to conflicts is based on the assumption (or condition) that those
who are stricken have the ability to mobilise and exercise collective action by
either directly possessing the means of violence or by putting pressure on agents
to exercise violence. Therefore these fears are highly relevant in areas where the
capacity for violence is spread across several groups who are based on local
communities (which are those that will be the worst affected).
One could further imagine scenarios where the state regime condones or
encourages conflicts between groups within the country or extending across
international borders in order to avoid that grievances being addressed to the
regime. Groups may address their grievances either in the form of violence
directed at the regime or through political pressure in order to make it act on the
behalf of the affected groups. This argument builds on the possibility that the
state level may transfer or tolerate a certain amount of ‘self-help’ to sub-state
groups that possess the means of violence.106 It may even supply sub-state groups
with such means and latter-day ‘letters of mark’ to fend for themselves much like
the privateers of the early modern era in Europe.
The strength of sub-state loyalties in many parts of Africa is certainly a factor
that plays in to the proliferation of conflict in general and under future conditions
105
See Howe 2001:73-128 for an excellent survey of the diversification of security actors in many
African countries, often decoupled from the state level (either in the forms of sub-state militias or
the ruling regime’s own security apparatus) or even from the state regime itself. The term
“peripheralization of security” (Howe 2001:84) captures the drift away from the state, sometimes
by independent regime forces, sometimes by sub-state actors prevalent in many African countries.
106
For evidence of such practices vis-à-vis the army in Nigeria and Uganda see Howe 2001:43-44
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of climate change in particular. If the lands of a particular tribe or kinship group
are afflicted by the adverse conditions of climate change, how will members of
that tribe who are enrolled in the security forces react? Where will their loyalties
lie? The problems of sub-state groups with armed capacities pursuing either
political or purely economic ends, the latter in a highly predatory fashion, are
compounded by the prevalence of small arms in many African countries.107
However, a second hypothesis may be formulated based on the general
arguments of this section: Climate change will not change the basic security
situation in Africa as defined in this report. The basic internal mechanisms as
well as those that connect politics in the regions of the continent with global
dynamics will be able to continue working. These are the decoupling of the state
regime from the parts of society left outside power. If anything, climate change
might actually strengthen the state layer by stripping other organisations of
power and resources (like in Zimbabwe today). The afflictions that local
communities and groups may suffer as an effect of the consequences of climate
change (e.g. lessened food security, loss of homes and habitat) could also play
into local security dynamics by being exploited by state regimes against groups
within the country. A possible scenario is of foreign aid and adaptation aid being
withheld from groups that are perceived as potential threats to the regime.
Similar strategies have been used in the past but with worsened conditions for
agriculture or habitability due to other kinds of ecosystem degradation (e.g.
salination of drinking water) in some regions, the effects could be even worse,
making such strategies more effective in fragmented countries.
Strengthening the state regime may in some cases have grievous effects on
human security since a state monopoly of violence does not necessarily entail
pacification and rule of law but unopposed coercion. To this threat to human
security must of course be added the stress that climate change itself imposes
through worsening adverse conditions and extreme weather events. Thus
although the Human Development Indexes (HDI) may plummet further, the
security effects may not be as adverse as some reports state.
This hypothesis therefore depicts a slow decline rather than sudden collapse or
implosion that would lead to new conflicts or even patterns of conflict. This idea
is based on a rejection of the ‘tipping point’ arguments that are often made in
popular media or by ecologists. Furthermore, as Michael E. Brown points out,
‘…the idea that internal conflicts are driven more by mass-level forces than by
elite-level forces seems to be off-target’.108 Although mass-level forces are not
107
108
Stedman 1996:247-48
Brown 1996:572 & 582
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unimportant, their role in triggering internal conflicts is far less important than
that of elite-level forces. Firstly, human societies are adaptive and adjust rather
than collapse, albeit to even lower HDI levels. Secondly, societies in many of the
less integrated countries in Africa have subsistence-based economies and due to
the low level of complexity and of activities connected to public spending, these
societies would not change much due to a weakening of the capacities of the state
layer. The above hypotheses apply primarily to the weaker states in Africa.
Climate change may also have effects on the stronger states such as South Africa,
Nigeria and Namibia. In turn, how they are affected will have other
consequences for the security dynamics of the regions of Africa.
A possibility that will be explored for the respective regions is that the collapse
of a major resource-rich country would entail a situation like the war in DR
Congo 1998-2003. It involved a changing state regime –and hence a war of
transition– in a resource-rich country that was connected economy-wise as well
as security-wise (UNITA-Angola) to a number of neighbouring countries.
Having outlined these possibilities, we now move on to a survey of the respective
regions of Africa.
Sub-regional trends and patterns
According to the IPCC Southern Africa is set to experience increases in
temperatures ranging from 2.5ºC in coastal areas up to 3ºC in the winter months
(DJF) and between 3 and 4ºC inland during in the summer months (JJA).109 The
western and inland parts of the region are set to be most significantly affected.
The zone with an estimated increase of 4ºC during the summer extends from
Botswana, Zambia and into Namibia and southern Angola. Precipitation levels
are set to decrease throughout the region during the summer months, again with
variations between -10 to -15% around the coasts, through -20% in the inland of
the Western Cape to a staggering -40% to -50% across the Kalahari, Namibia,
western Zimbabwe and southern Zambia. During the winter months, however,
there may even be slight increases in the Eastern Cape and KwaZulu-Natal
regions of South Africa (<+5%) and more significant increases across northern
Angola, Zambia and Mozambique
What happens to South Africa is a major question for the future security
dynamics in the Southern African region. Zimbabwe, Angola and South Africa
are the most militarily significant actors of the region.110 It should also be noted
that although Southern Africa will be severely affected by changed climate
109
Christiansen et. al. 2007:869 June, July and August, obviously not being summer months in
Southern Africa.
110
Howe 2001:75
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conditions in the form of rising temperatures and probably droughts, this region
has developed relatively effective institutions of conflict management and
resolution. The most important is the Southern African Development
Cooperation (SADC) and a major task in order to stabilise this region is to
encourage and support this organisation. It should be stressed that Southern
Africa is one of the regions of the world that has had the best experiences of
institutionalised conflict resolution. This applies to environmental and resource
issues as well. As a result of signs of tensions over water resources in the
Okavango River basin, shared by Angola, Botswana and Namibia, an
international commission was established in 1994. It has so far successfully comanaged the river, hindered conflict and contributed to strengthening of
institutional ties between the countries of the region.111
According to the models of the IPCC, West Africa, like all regions in Africa will,
experience increases in temperatures, but with some exceptions these will be
smaller than in North and Southern Africa. Along the densely-populated Gulf of
Guinea, temperature will increase by around 2ºC summertime and up to 3ºC in
the winter (DJF). There will be significant changes in levels of precipitation with
the coastal areas from Guinea to Congo-Brazzaville receiving increases of up to
15% (particularly Nigeria) during the winter months.112 Although social and
political events are very hard to gauge from such abstract projections of natural
systems, it is particularly noteworthy and possibly worrisome from a security
point of view that Nigeria may experience strong variations between its northern
and southern regions. Nigeria, the country that justifiably can be considered the
region’s hegemon, is today marred by political tensions with ethnic and religious
undertones between its north and south. If climate change were to worsen
tensions within Nigeria, this might have consequences for the entire West
African region.
According to most models used by the IPCC, ‘[t]the increase in rainfall in East
Africa, extending into the Horn of Africa, is also robust across the ensemble of
models, with 18 of 21 models projecting an increase in the core of this region,
east of the Great Lakes’.113 As previously stated, one cannot link natural factors
directly to social effects. However on the basis of climate change models of
changes in temperature and precipitation, increases in the number and severity of
drought, which may destabilise states and societies, do not seem probable for the
Horn of Africa.
111
Barnett 2000:277 See also the Okavango river basin commission’s website
http://www.irbm.co.bw/
112
Christiansen et al. 2007:869
113
Christiansen et al. 2007:869
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Inter-Regional and Global Consequences
Throughout history, African states and societies have been objects, rather than
subjects, of global politics. This situation is unlikely to change due to any of the
factors surveyed above, except in one respect: the United Nations system. The
stress that African states and societies will face due to climate change,
demographic change, economic and resource stress may give them a stronger
bargaining chip in international diplomacy and thereby affecting the nature of
external penetration. It is also likely that African states may be enrolled by the
respective sides in the international negotiations on climate.
Summary
In agreement with Swatuk, the conclusion of this report is that climate change is
unlikely to change the basic structural conditions of African international
politics.114 Certainly, because the regions of the continent are among the worst
affected by climate change, both in the form of drier and wetter climate, and the
least able to adapt, the effects will be hardest felt in terms of human suffering.
However, the impacts on security as it is understood in this report are unlikely to
be large. One of the reasons for this argument is the rejection of the idea of a
collapse of African societies that would result in a dramatic change in politics
within and/or between states.115
Two additional factors must be discussed in addition to the two hypotheses
outlined above. The first concerns the possibilities of substantial reductions in
foreign aid and the second concerns the possibilities of democratic and economic
progress. In the case of the first, it could be argued that the economic effect
either of adapting to climate change or of dealing with the adverse effects of
climate change, e.g. natural disasters, may weaken the possibilities and interest
of developed countries in sustaining current levels of foreign aid. Not only that,
but they may also become less inclined and possibly less able to supply
economic means and technological know-how to support the necessary
adaptation measures and institutional strengthening that African countries will
need to tackle the challenges of climate change. This problem could be further
114
‘The Southern Africa of 2050 in my view will not look much different from that of 2006, but in
the absence of meaningful interventions such as those highlighted above, the region will be worse
off, though given the almost universally low HDIs across Southern Africa, it seems to me the
region and the vast majority of its peoples have not much further to fall’. Swatuk 2007:25
115
In the gloomy words of Swatuk ‘In my view, such disparities will not lead to social collapse
either in the short term (2020) or the medium/long term (2050). African societies show a
powerful resilience in the fact of negative change. And where there are comprehensive negative
effects, people die –lacking a support base, or a vanguard of any kind, the poor simply do not
make revolution; they die.’ Swatuk 2007:6
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exacerbated by the fact that many other regions, such as the Middle East, may be
in dire need of assistance from the North. Tough policy choices may face the
future leaders of the West and we are well advised to begin a thorough debate on
options and programmes as soon as possible.
The second factor concerns the possibility of development of democratic
structures and viable economies. As Howe rightly points out, democratization
has important effects on the professionalisation of African military forces which
in turn strengthens the impersonal and abstract state, not just the regime running
it.116 Strengthening democratic armies in turn shrinks the scope for other armed
actors, for corruption, for predatory ventures and for deteriorating inter-, intra-,
and cross-border security situations. Such developments in turn enhance the
capacities for handling climate change and preventing natural causes from
becoming security effects. Failing support and engagement from the North, such
developments may not be forthcoming over the next fifty years. In connection
with the argument pursued in the preceding paragraph, rising challenges to the
finances but more importantly to the political attention of the West due to
unresolved issues of adaptation/mitigation may spill over on the situation in
many African countries. Hence, the corollary to the conclusion that climate
change may not drastically change the appalling situation in many African
countries is that climate change, if not managed with engagement, may prevent
the situation from getting any better.
3.2.2
The Middle Eastern Regional Security Complex
Introduction
It is instructive to study the Middle East and its sub-regions, the Maghreb (North
Africa), the Levant and the Gulf, in comparison with the African regions
surveyed in the section above. There are certain structural similarities between
Africa and the Middle East concerning the nature of the states as well as the
character of inter-state relations that are disconcerting in the perspective of
climate change-induced stress on these two regions. These factors also provide us
with useful analytical starting-points.
Preliminaries – the State and International Relations
in the Middle East
Many countries in the region are weakly integrated state-society complexes in
which the state level is to a large extent decoupled from ‘society’. However, in
116
Howe 2001:275-87
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contrast to West and Central Africa, the state layer is however quite strong in
many cases, with extensive capacities for maintenance of internal order, often by
quite repressive means. However, few regimes have any kind of popular
accountability and remain in the hands of elites or, in the cases of Syria and
probably Libya, quasi-dynasties. Most states, if not all, harbour considerable
fractures and opposition to the ruling regimes with large latent or actual domestic
unrest. In cases like Egypt and Saudi Arabia, the opposition movements, such as
the Muslim Brotherhood, are kept down by the repressive apparatus of the state.
Thus, the order in many countries may be superficial in the sense that there is
considerable potential for unrest or even destabilisation if the regime were to be
seriously weakened.
Another worry is the large degree of dependence of many countries on one key
asset, namely oil. The oil-fuelled economies of many states are also a motor of
economic development in the region, for example by enabling large numbers of
overseas guest workers in the countries of the Gulf. The funds that they are able
to send home are in many cases important contributions to the economies of their
home countries. The role of oil and gas exports in stimulating the regional
economy is not only seen in the number of overseas guest workers but also in the
fact that oil revenues buttress other sectors of the economy by providing capital.
This dependency is disconcerting because oil, and to a lesser extent natural gas,
will become scarcer in the future and thus a less reliable source of income.117
Even if such a development lies in the relatively distant future and even if lower
yields due faltering supplies may for a while be buttressed by rising prices, oildependent economies may be severely affected by mitigation efforts aimed at a
transition away from fossil fuels. Hence, the key determining question as well as
major bifurcation point for any kind of scenario designs concerning the Middle
East – and given its tendencies to affect global politics – is: When and under
what circumstances will oil production be affected climate change by mitigation
efforts?
It is also worrying that other sources of national income, which may yet harbour
untapped potential for economic growth, are likely to be negatively affected by
climate change effects. Two of the most important are agriculture, both for
subsistence and for the export market (e.g. vegetables and citrus fruits), and
tourism. For sure, these factors are problematic, but what is the connection to
conflict? Below the four pathways to violent conflict (internal conflicts,
international conflicts, resource conflicts and scarcity conflicts) are discussed
under conditions of climate change in relation to the Middle East:
117
In a recent study Fredrik Robelius (2007) argues that world oil production will peak between
2008 and 2018 and thereafter decline.
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The internal politics of many countries in the Middle East have an adversarial
setting with limited channels of communication of dissent and grievances. These
two factors increase the liklihood that climate change effects may be used by
political actors to serve their own interests in domestic conflicts. Given the
conflictual nature of domestic politics in several countries, political struggles
over climate change effects naturally play into a tenser setting than in, for
example, Europe.
Since many countries in the region are internally unstable there is a risk that
increased pressures on health, habitat, economy, and food security might lead to
unrest. These kinds of degradation will play into hostile dynamics between state
regimes and more or less militant opposition movements. This risk could be
interpreted in two ways: First, the possibility that regimes and opposition
movements may consciously adopt and/or exploit the negative effects of climate
change for their own political ends. Second, given the low degree of
democratisation and political representation the channels of communication
between state and society are very limited, which means that peaceful means of
addressing grievances and issues of concern may be limited. Either way, the
polities of the region could be seen as having structural traits that make
destabilising effects of climate change a real possibility.
As regards international relations, the area has a relatively bellicose past and far
from all security relations are directly connected to the Israeli-Palestinian
question.118 There is a cyclical tendency in the pattern of conflict and
cooperation, which is linked to state stability and economic prosperity. Greater
state strength in the 1970s and 1980s, largely but not exclusively thanks to rising
oil revenues, lessened tensions over transnational issues, inhibited (or repressed)
internal strife and discouraged state opportunism.119 This characteristic stands in
stark contrast with the 1950s and 1960s, which was a period marked by wars,
uprisings and interventions both by external actors and by actors in the region
(e.g. Nasser’s Egypt). Natural resource revenues do not account for the
strengthening of state structures that has taken place in many countries of the
region, even those without oil resources, such as Morocco.120 This relatively
stable situation is currently being rocked by the competition over legitimacy
118
Although the Israeli-Palestinian conflict is of very large political and symbolic importance, there
are several other conflicts that are sustained by independent dynamics. This is evidenced by
comparing the overall regional fatality figures in the Arab-Israeli conflicts between 1945 and
1995 (74,000 military and 18,000 civilian) with the figures from other Middle Eastern conflicts
(345,000 military and 561,000 civilian). Buzan & Wæver 2003:215-16
119
Bronson 1996: 218
120
Bronson 1996:220
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between regimes and various Islamist opposition movements.121 Despite the
relevance of the spectre of the Middle East returning to a more conflictual pattern
(between states) if an economic downturn occurs, this model of thought may be
problematic. The conflicts of the 1950s and 1960s were not only the result of
worse economic conditions but were to a large extent wars associated with
decolonisation and the formation of a state-system in a region that had previously
been dominated by colonial and imperial systems.122
Above different pathways to violent conflict in conjunction with climate change
were outlined. One of these was the possibility of a country’s weakness due to
the effects of climate change being exploited by its neighbours. The Middle East
region contains some security issues of a transnational character, for instance
insurgency movements that operate in several countries or use one country as a
base for operations in another. One example is the Kurdish insurgency in Turkey
which has operated from bases in Iraq and Syria. It also plays into the dynamic
between Turkey and Syria over access to water since Syria is using the PKK to
pressure Turkey on this point.123 As long as all states in the Levant region are
relatively strong or, as in the case of Iraq, protected by an external power,
interventions by neighbours to settle scores with sub-state actors is not an option.
However, should a state such as Syria be weakened by a series of events such as
a collapsing economy, political disarray and deterioration of central control then
a window of opportunity for intervention might open up. As Lebanon’s troubled
history during the civil war of 1975-90 shows, armed intervention into an already
fractured and conflictual situation by an external party may well exacerbate
conflict and instability.
The issue of water
The third category outlined as a pathway to conflicts under conditions of climate
change was ‘resource conflicts’. In the Middle East, water is often considered a
scarce resource and several prognoses have been made that tensions over access
to water might lead to conflict. Politicians and analysts124 alike convey the
picture that water is a resource with links to conflict that range from the plausible
to the almost certain.125 Furthermore, such links are expected to become stronger
121
Bronson 1996:223-26
Buzan & Wæver 2003:216-217
123
Bronson 1996:227
124
For the scholarly debate, Gleick 1995 is an important, albeit problematic text. See also Chou,
Bezark and Wilson 1997
125
For instance, the former UN secretary general Boutrous Ghali warned in 2005 that war between
the riparian states of the Nile River is “almost inevitable” a statement which is cited in certain
122
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under conditions of climate change and particularly so in already arid regions
like the Middle East and Central Asia.126 Despite its popularity, the argument that
the scarcity of water resources is likely to lead to violent conflict (or has in fact
already been a factor in conflicts) is beset with a number of problems. The
argument linking water scarcity to violent conflict can be contested on a number
of accounts, theoretical as well as empirical.
Regarding the theoretical underpinnings of this argument the following points
must be taken into account.127
1. In contrast to short-term studies, long-range studies of water scarcity tend to
find greater likelihood of co-operation and adaptation than conflict.128
2. As noted above, although decreasing resources may hit agriculture and
negatively affect the quality of the human habitat, this in itself does not
constitute sufficient grounds for violent conflict, particularly not
international conflict. This is particularly true if a society were to be
substantially shaken by shortages of a key resource such as water. Instead of
prompting actors to go to war, it may actually weaken their capacity to do so,
forcing them to focus on more immediate questions, such as maintaining law
and order.
3. Arguments that scarce water resources may lead to conflict take insufficient
account of the adaptive capacities of human societies.129 Instead of resorting
to violence or collapsing, societies may lapse into what evolutionary theory
calls ‘low-level equilibrium traps’.130 Societies do not necessarily collapse
but adjust and go on with activities but on a lower level than before.
4. Access to water is problematic in many parts of the world and the
inequalities in its distribution have serious ethical and equity ramifications. It
is important to note that the perception of inequalities and inequities may
reports, for example Drexhage et al. 2007:20. Gleick 1995:91 also cites this statement by
Boutrous Ghali
126
cf. CNA 2007:30
127
For a recent authoritative study on water and conflict see Philips, Daoudy, McCaffrey, Öjendal &
Turton, 2006
128
Matthew, Gaulin, & McDonald 2003:866
129
This point is forcefully argued by Matthew, Gaulin, & McDonald 2003
130
For an example of how this argument is applied in the social sciences see Spruyt 1994
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increase tensions and provide ample material for actors seeking to foster
conflicts. However, it must be noted that scarcity is relative to the
technologies that can make use more efficient and in the case of
industrialised countries to changes in lifestyles that could bring down
consumption.
5. As argued above, the nature of the causal links between scarce resources, of
whatever kind, must be closely thought through. Scarcity of water could,
together with other factors act as a permissive cause of conflict, not as a
proximate cause. The eruption of hostilities is decided by political actors
and, as Michael Brown points out, the best insurance against hostilities is,
good leaders and good neighbours.131
The empirical underpinnings of the argument that water scarcity may lead to
conflict can be examined by looking at two cases from the Middle East, the
Euphrates-Tigris basin and the Jordan valley. An obvious observation is that the
water question is enmeshed with the complex dynamic of power games in the
region, involving domestic, international and transnational issues. Questions of
the overall leadership of the region may also play a part in the politics of water,
for instance reflected in Saudi Arabia’s support of Syria against Turkey in
persuading the World Bank not to finance Turkish dam projects until a riparian
treaty had been worked out with the states downstream.132 The cycles of
cooperation and conflict over water in Euphrates-Tigris basin have coincided
with the changing relations of power between the countries of the area during the
1980s, 1990s, and 2000s.133
The use of scarce water resources in hindered by a number of sub-optimal
solutions in the region. As Çarkoğlu & Eder note, in all riparian countries of the
Eufrates-Tigris basin (Iraq, Syria and Turkey) there is a strong emphasis on food
self-sufficiency ‘regardless of its efficiency and its economic return’.134 They
name the political clout of the agricultural sector in all three countries and the
lack of trust in the mutual relations of the states as features that sustain
agricultural protectionism. Hence, although water availability is not as large as in
Western Europe, the social and international effects of scarcity cannot be
surmised only by looking at water levels.135 Instead, the structure of domestic
politics as well as of international relations in the area account for how this
resource is used. An internationalised market for agricultural products could lead
131
Brown 1996 op.cit.
Çarkoğlu & Eder 2001:59
133
Çarkoğlu & Eder 2001:59-67
134
Çarkoğlu & Eder 2001:56, 59
135
Çarkoğlu & Eder 2001:52
132
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to greater efficiency in water use which would be an effective institution of
adaptation to climate change.136 The preconditions of such a measure would be a
reduction of suspicions between the states in question and liberalisation of the
agricultural market. In order to make such moves politically feasible and to
forestall mass unemployment in the agricultural sector programmes of reeducation and subsidies would have to be implemented.137 The root of the
problem which is perhaps most difficult to address is to change the current
relations between the countries.
In order to gauge the role of water resources in conflicts, it is very instructive to
compare the Euphrates-Tigris situation with the politics of water in the Jordan
valley, primarily involving Israel, Jordan, Lebanon, the Palestinians and Syria.
Plans for the distribution of water resources were first developed in the 1950s
but, given the hostility of the parties (then including Egypt) they could not be
implemented. The positions of the parties on water issues could only change in
the 1990s once general peace agreements had been signed between the parties (in
1982 between Egypt and Israel). Once general relations improved, issues of
water use could be given their institutional solution.138
The differences between the tenser relations in the Euphrates-Tigris basin and the
more cooperative relations in the Jordan valley lends themselves to two kinds of
explanations, the first focusing on the regional balance of power and the second
on whether resource scarcity or abundance is more conducive to conflict. The
first explanation would stress that the impossibility of the Arab countries
challenging Israel militarily has increased the necessity for negotiations and has
proven the futility of conflicts and brinkmanship, at least by state actors. In
contrast, the more evenly matched Iraq, Turkey and Syria are able to engage in
rivalry since none of them possesses clear dominance over the others. As stressed
above, the relative strength of all parties in this configuration as well as that of
their allies is a factor that contains the conflict to the political sphere. The second
explanation would argue that the differences in the two cases lend support to the
thesis that resource abundance rather than scarcity is more likely to lead to
conflict.139 It is also clear that a historical record of conflict cannot provide a
136
Çarkoğlu & Eder 2001:65
With the exception of Iraq, a substantial part of the populations in all three countries is employed
in the agricultural sector. The figures are: Iraq 7% https://www.cia.gov/library/publications/theworld-factbook/geos/iz.html#Econ , Syria 26% https://www.cia.gov/library/publications/theworld-factbook/geos/sy.html#Econ, and Turkey 35%
https://www.cia.gov/library/publications/the-world-factbook/geos/tu.html#Econ, (all accessed
2007-07-24)
138
Haddadin 2000:280 & 282 For a somewhat different point see also Lowi 1995 [1993]
139
Matthew, Gaulin, & McDonald 2003:856, 863
137
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clear map of whether a region will experience conflict, armed or otherwise, in
connection with access to water. Israel and Jordan have fought three wars since
1948 but now cooperate over water. In contrast, Syria, Iraq and Turkey have
never fought in modern times but their security relations are far worse.
Furthermore, the existence of migrants and other transnational issues does create
a propensity for conflict, but this cannot be detached from the overall political
context. In both cases, serious transnational issues exist between riparian states.
In the first the Kurdish PKK guerrilla sours relations between Syria and Turkey
and in the second the Palestinian question between Israel and Jordan. Only in the
latter case, however, has this issue been consciously linked to the issue of water
rights by a political actor (Syria), thus complicating the situation and worsening
tensions.
Whatever approach provides the best explanation, it stands clear that one cannot
understand the complex issue of water and conflict just by looking at levels of
precipitation or availability. Being politics, the politics of water cannot be
understood by recourse to ‘water itself’ but rather to the political context of a
region. Hence simplistic prognoses of a causal link between the availability of
water and conflict, political or military ought to be avoided.140 What we do see
is that environmental issues can be used by political actors in tense domestic and
international conflicts, a point that was underscored above in the section
‘pathways to conflict’. Just as political actors may choose to ‘play the ethnic
card’ in relation to climate change migrants, politicians may, hypothetically ‘play
the water card’ in relation to both citizens and neighbours. Whether they will
choose to do so and whether they will be successful in raising tensions by doing
so depends a lot on the political climate, the structure of their polities and on
their regional relations. Hence, water scarcity may lead to hardships for humans
and animals alike, including worsened food security, but the links to large-scale
armed conflict remain problematic.
Having pursued an argument of moderation in this section, we nevertheless want
to insert a couple of caveats into it. Three factors may be identified that introduce
an element of uncertainty into future developments: the speed of future changes,
the demography and the economy. As noted in the section on political geography
above, the climate changes that the IPCC foresees coming in fifty- to a hundred
years from now will be much more rapid than previously experienced by human
140
This point is also argued in detail, with particular reference to Southern Africa, by Turton,
Moodley, & Meissner In this report, written for the Group for Environmental Monitoring (GEM),
the authors state that: ‘The water wars that the popular media would have us believe to be
inevitable, will not be fought on the battlefield between opposing armies, but on the trading floors
of the world grain markets between virtual water warriors in the form of commodity traders.’
p.1 & 20
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societies. An unknown factor is whether the pace of these changes will be so
rapid that the adaptive capacities of affected societies will be overstretched.
The projected increases in population of the area may reduce the absorption
capacity of the societies and ecosystems of the area. The unknown element of
time also plays into the demographic factor since increases in population and
speed of climate change effects may combine to outpace adaptive capabilities.
Finally, the effects of climate change will coincide with falling oil supplies and
revenues during the twenty-first century. This combination may challenge
societies of the regions by catching them in a double-pincer movement of
deprivation of resources and financial assets.
The risk of scarcity conflicts is a very difficult question to determine given the
limitation in scope of this report, the complexity of the matters and the
difficulties in predicting future developments. However, there are several factors
that could make the propensity of this region for subsistence conflicts lower than
in certain parts of Africa. The level of control by the state level is generally much
stronger in the regions of the Middle East and has less willingness to allow a drift
towards armed self-help dynamics by local communities. The greater levels of
urbanisation also work against direct subsistence conflicts. Responses to
decreases in food security might instead take the form of rising levels of crime or
urban unrest.
Sub-regional variations
The Maghreb sub-complex141
The Maghreb subcomplex covers two climate regions, North Africa and the
Sahel, which will be differently affected by climate change. This section begins
by discussing the respective consequences predicted by the models used by the
IPCC and then, when possible, discusses possible political and security
consequences.
North Africa is set to be strongly affected by climate change with respect to
temperatures as well as to precipitation levels. Across the region temperatures are
set to increase with 2.5ºC during the winter months and 4ºC during the summer
months (2.5-3ºC in coastal areas). Precipitation levels are set to decrease by
between -20-30% during the winter and around -40% during the summer, with
more severe effects in the Western part of the region.142 Although these figures
are estimates of 21 models for change in the period 2080-2090 relative to 1980 to
141
142
Algeria, Libya, Morocco, Tunisia and Western Sahara
Christiansen et al 2007:869
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1999, the results they convey point in a definite direction even for the year in
which this report is set, 2050.
Concerning the Sahel, the models referred to by the IPCC diverge, with some
sets (GFDL/CM2.1) pointing towards a strong drying and another
(MIROC3.2_midres) pointing towards a ‘very strong trend towards increased
rainfall in the region’.143 Hence on average slight annual increases in
precipitation seem probable, although with seasonal variations such as decrease
in the winter and increases in the summer.
Two important external consequences for Maghreb are if (a) agriculture in the
southern EU is hit hard and (b) if the EU closes its borders to immigrants with a
firmer hand. The first of these would mean economic opportunities for the
exports of agricultural products from the Maghreb, thereby strengthening the
economy in these states. Given that southern Europe and the Maghreb will see
similar effects of climate change in terms of rising mean temperatures and
decrease in precipitation, this seems unlikely. However, agriculture in southern
Europe could however be in a worse condition than that of Northern Africa due
to problems of water supply given that scarce water might be used in industries
and households to a greater extent, but that remains speculative.
The second external effect, if the EU were to close its borders more effectively
than today, would be extremely serious for societies in the Maghreb. Emigration
provides an important outlet for people whose possibilities of supporting
themselves in their native countries are poor. Given the burgeoning population of
the Maghreb, cutting off this possibility could increase instability in these
societies, particularly since the majority of migrants are young men.
The Levant subcomplex144
Of particular concern in this region, especially under conditions of serious
climate change, is Egypt. Under the higher scenarios it may be subject to several
simultaneous pressures. Sea level rises might threaten the millions that live in the
low-lying Nile Delta, while at the same time, the inflow of water to the Nile
decreases, leading to severe effects on agriculture. In combination with the
general rise in temperature, especially during the summer months this may
increase stress on the population and seriously damage the country’s tourist
industry which in 2002 brought US$3,764 million to Egypt145.
143
Christiansen et al. 2007:869
Egypt, Syria, Jordan, Israel, Lebanon
145
http://www.world-tourism.org/facts/eng/pdf/barometer/june2004.pdf access 20070726
144
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A key issue in this subcomplex, as well as in the Horn proto-complex and the
Central African RSC is what happens to the river Nile. The White Nile flows
through Uganda, Tanzania, Sudan and Egypt, whereas the easterly Blue Nile
flows through Ethiopia, Eritrea, Sudan and Egypt. Today, a total of 360 million
people live in its basin, including almost all of Egypt’s 78 million.146 By 2050,
Egypt’s population is projected to have increased to 125 million.147 The
corresponding figures for Sudan are from 41 million in 2006 to 84 in 2050.148
Evaporation and possible decrease in precipitation are two important reasons to
fear the Nile drying out. However, precipitation levels are predicted to increase
in Central and East Africa which may to a certain extent offset some effects of
increased evaporation. Nevertheless, it is conceivable that these benefits would
only affect Southern Sudan and not Northern Sudan and Egypt further
downstream. The reason would be that evaporation is likely to have more effect
on flows the further north one goes.149
A drying of the Nile, with concomitant water stress in Egypt, would have serious
effects on several areas.150 Although the connection to armed conflict remains
tenuous, it could damage the Egyptian economy and worsen human habitats.
Whether such a development would destabilise Egypt or not is difficult to
predict. However, given the importance of the country to the Levant sub-region
the very possibility is a cause for concern. Given the economic interdependence
of the region and the importance of sustained water security in Egypt in a way
that does not infringe upon the countries further upstream, joint cooperative
institutions like the Nile Basin Initiative are very important since they mean that
riparian states meet future challenges jointly.151
146
Wong, Williams, Pittock, Collier and Schelle2007:28
http://www.prb.org/DataFind/prjprbdata/wcprbdata7.asp?DW=DR&SL=&SA=1
access 2007-07-25 Do note however that the United Nations projections range from 101 million
(low variant projections) through 121 (medium) to 143 million (high) in 2050. If constant levels
are maintained, the UN projects a population of 163 million.
http://unstats.un.org/unsd/cdb/cdb_years_on_top.asp?srID=13660&Ct1ID=&crID=818&yrID=20
50 access 2007-07-25
148
http://www.prb.org/DataFind/prjprbdata/wcprbdata7.asp?DW=DR&SL=&SA=1
access 2007-07-25
149
Cmp. Wong, Williams, Pittock, Collier & Schelle. 2007:28-30
150
c.f. Esty 1999:298-299
151
See the Nile Basin Initiative’s website http://www.nilebasin.org/ access 2007-07-25 For further
cooperative measures in water issues see Carius 2007. For the role of the European Union (The
EU Water Initiative, EUWI) in international cooperation in water questions, particularly in Africa
(such as the Nile River Basin Initiative) see Carius, Tänzler, and Feil 2007:47-50
147
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Consequences of Mitigation – Adaptation Measures
A paramount issue of concern for the Middle East region in general and for the
Gulf subcomplex in particular in the interrelated field of climate change and
energy politics is what will happen to the global consumption of fossil fuels.152 In
this report, the question of whether consumption and thereby sales will be
reduced or not is considered not to be as significant as the question of when and
under what circumstances (international as well as domestic) this will occur. The
Middle East and the Gulf region in particular need to adapt not only to a world of
climate change but also to a world of significantly lower amounts of
consumption of fossil fuels. Some policies of moving away from the exports of
oil are visible in the United Arab Emirates, most significantly in Dubai which is
diversifying into the service-sector, primarily high-values services such as
finance.
Over the next fifty years, the Middle East could be facing a highly problematic
double pincer movement of increasing strain on societies and economies due to
climate change as well as to demography on the one hand and increasing
shortage of funds on the other, either due to the waning of oil supplies in the
region (a disputed point) or because of a reduction in demand due to climate
change mitigation efforts. If serious global –or even Western– policies of
mitigation are pursued, then the need to reform the oil-dependent economies of
the Middle East towards diversification may come sooner but reforms may also
be conducted in a planned manner. The alternative might be that oil-exporting
countries go on relying on a finite resource and wishful thinking and hence
postpone reforms of their economies to a point where they may lack the adequate
funds and state stability to carry them through.
The long-term nature of both scenarios involving decreasing levels of state
revenues from oil with knock-on effects for stability make it harder to envision
preventive action. Nevertheless, the grave security implications of Middle
Eastern state structures and economies imploding – possibly in combination with
effects of climate change – ought to persuade Western governments, European in
particular, to contemplate long-term policies of engagement and support. A
conclusion that can be drawn from this section is that the economy is a key
factor, as well as a key uncertainty in relation to the future security situation. The
problematic connection between economy, state stability and conflict propensity
will be further discussed below.
152
This issue is dealt with in Chatham House 2005, See in particular 1-5 & 44-45
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3.2.3
The Asian Supercomplex
We now turn to the regions of Asia (East Asia, Northeast Asia, Southeast Asia
and South Asia) with the purpose of ascertaining the propensity for conflict in
connection with climate change. Because of the vastness of this area and the
variety of climates, terrain types and political systems, this report restricts the
focus on three areas: South-east Asia in general153, India and Pakistan and China.
China and Climate Change
This section discusses climate change in relation to China with particular focus
on the question of whether, and if then how, it will affect China’s stability. It
deals with possible pathways to the destabilisation of China, but stops short of
outlining scenarios of an actual collapse or dissolution. This choice is based less
on an estimate of probabilities than on the necessities of limiting this section.
Some possible international and regional effects of destabilisation and/or the
establishment of a much more hard-line government are discussed. In relation to
China the first important question to answer is if and how climate change will
affect its current and future growth rates and economic development. The second
is to try to ascertain the effects this will have on the region and on the world.
It is difficult to discuss climate change in China without taking into account the
massive environmental degradation already taking place.154 It has been estimated
that environmental degradation places a large strain on China’s economy,
amounting to losses of at least 10% of its gross domestic product (GDP) and
perhaps as much as 15%.155 Apart from industrial pollution, water stress and the
scarcity and poor quality of arable land are the most serious problems facing the
country. Water stress and agricultural output and productivity in particular are
expected to be adversely affected by climate change. In the northern provinces,
water scarcity is estimated to increase whereas precipitation increases in the
south are estimated to increase instances of flooding. Productivity on irrigated
land is expected to decrease by between 1.5% and 7% and on rain fed land by
between 1.1% and 12.6%. The seven provinces in the north and northeast that
account for 14% of the total value of agricultural production are the most
vulnerable areas.156 Already, China’s grain production has already been
substantially impaired by environmental degradation, something that worries
agricultural planners.157 Furthermore, the IPCC argues with ‘high confidence’
153
Burma, Indonesia, Cambodia, Laos, Malaysia, the Philippines Thailand and Vietnam
For an overview see Smil 1996
155
Smil 1996:2
156
Stern Review Report 2007 p.77
157
Rozelle, Veeck, and Huang 1997
154
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that ‘[c]oastal areas, especially heavily-populated mega-delta regions in South,
South-East and East Asia will be at greatest risk due to increased flooding from
the sea, and in some mega-deltas, flooding from the rivers’.158
Since the beginning of China’s transformation during the reign of Deng Xiaoping
over two decades ago, popular protests and social unrest have multiplied in
China. A number of issues have been identified as reasons for the protests, such
as economic problems, labour issues, corruption, land ownership, environmental
degradation and access to water.159 The first three reasons are socio-economic
whereas the last two are more directly environmental. Climate change is
interesting in this respect since its effects may bring together and exacerbate two
important causes of popular protests in China: Environmental degradation
(through droughts, flooding, extreme weather events) and economic difficulties
due to the costs of adaptation and damage to the economy.
In light of the projections of climate change there is a risk that China may
encounter socio-political instability due to the combined effects of climate
change and environmental degradation. This risk is connected to China’s
political system as much as to the scale of climate change and pollution. Because
of the repressive political system social movements protesting against
environmental degradation and the effects of climate change could be much more
destabilising than they would be in a pluralistic country where the political
system can deal with protest and interest articulation in a more accommodating
way. Although China’s leadership has displayed a greater flexibility and
foresight than those of the former Soviet bloc countries, China still exhibit some
of the general vulnerabilities of totalitarian states. The ruling apparatus has an
inclination to treat protests as a challenge to the system and to the party’s
leadership. Because of this tendency to de-legitimise any kind of protest a
totalitarian dictatorship increases its own vulnerability.160 In this sense
environmental degradation and climate change could become destabilising to
China.
However, according to Kieslow, environmental protests are viewed differently
by the Chinese central government than for instance democratisation movements
or labour protests.161 To a certain extent, they are seen as having a greater degree
of legitimacy and the central government takes care to collaborate, or co-opt
158
IPCC Working Group II 2007:8
Keidel 2005:3
160
Similarly Goldstone 1995:40 argues that it is not simple Malthusian arithmetic that threatens
China’s stability in relation to population growth but rather the Marxist-Leninist doctrine of
complete control by the ruling party.
161
Kielslow 2006:64
159
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depending on the vantage point with environmental movements. One reason for
the greater acceptance of environmental protests is that they are seen as
addressing local and not systemic problems. Should the character, or the
leadership’s perception of environmental protests change, then a cycle of
repression and radicalisation could be set into motion.
Fears about the stability of China in connection with food security as well as
economic stability have been voiced in previous research. However, Jack
Goldstone points out that ‘[c]hanging balances of population and farmland do not
threaten the Chinese people with starvation; but they may threaten the state with
revenue starvation and political crisis unless the state can adapt to new
circumstances’.162 Goldstone sees parallels between today’s situation and
previous periods of dissolution and decline in Chinese history; the common
factors being decreasing availability of arable and productive land, increasing
tensions due to rising prosperity and population increase.163 In a similar vein, Pei
links the decreased governance capacity of the Chinese state to its inability to
tackle the country’s vast environmental problems. Conversely, the environmental
problems pose a threat to China’s continued economic development while
increasing the likelihood of natural disasters and lower living standards for the
majority of the Chinese.164
Although the number of popular protests has risen sharply in China, certain
objections can be raised to the hypothesis that environmental changes or climate
change effects may increase the number and intensity of protests and that they
will have political ramifications. The first objection concerns the assumption of a
rise in the number of protests, the second the government’s ability to handle them
and the third the possibility of popular protests to materialise into mass
movements.
China has a number of environmental problems, for instance air pollution, that
directly affect human health and habitats. It has also seen huge changes in the
natural environment, such as the construction of the Three Gorges Dam, which
has caused relocation of about 1.3 million people.165 The construction of this and
other dams has led to corruption, environmental degradation and poverty, and
many human rights violations have been inflicted upon the displaced people.166
162
Goldstone ‘Debate’ p.69 For a more recent argument that China is facing a systemic crisis see
Pei, 2002 particularly pages. 99 & 101
163
Goldstone 1995:39, 41
164
Pei 2002:102-103
165
See the website of the International Rivers Network http://www.irn.org/programs/threeg/ access
2007-08-08
166
For an overview of the consequences of dam construction in China see Heming, Waley, and
Rees, 2001
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So far, the massive environmental degradation has not sparked well-coordinated
mass mobilisations across the country. The doubtful probability of environmental
issues causing an increase in protests contrasts with the likelihood of increased
protests due to strictly economic reasons, such as widening gulfs between
educated and non-educated and rural and urban workers.167 Articles pointing out
the resilience of the Chinese system note the strength of its economy and the
prolonged lease of life given to the Communist party by incorporating traditional
Confucian values into its discourse.168 However, the arguments that the
ecological problems that brought about by China’s recent development can prove
destabilising are not met in such articles. It appears to be relatively clear that the
connection between environmental degradation, climate change and the possible
destabilisation of China is mediated through the effects of the former on the
country’s economy. However, a necessary condition for destabilisation is
however that localised popular protests and rioting become coordinated and
coalesce into social movements.
China’s central government has shown itself to be adept at using a combination
of repression, pre-emptive action and accommodation to quell or direct protest
movements.169 One should also take into account that the People’s Liberation
Army (PLA), currently 2.25 million strong, has a high capacity for dealing with
natural disasters such as flooding and earthquakes.170 However, the relative
strength of the PLA, and the Communist Party’s reliance on it, may alienate
other non-army elite groups in China, thus decreasing societal cohesion.171
Finally, protest movements in China tend to be localised, with few ambitions or
possibilities of establishing linkages with other protesters in the same issue area
but in other parts of the country.
Protests among different groups in Chinese society have different potential for
political destabilisation. Lum notes that the leadership of the PRC as well as
political analysts consider protests by Chinese workers as having greater
potential political impact than protests by farmers. Workers have greater access
to communications, are closer to centres of power and, it should be added, are
more economically important to China.172 The groups with the best access to
channels of communication, the educated middle classes, tend to have benefited
167
Keidel 2005:7
For an example see Huang 1995
169
Lum 2006:8-11
170
International Institute of Strategic Studies 2007:346-351
171
Goldstone 1995:45 For a recent survey of China’s military build-up which argues that, despite
recent acquisitions of sophisticated weaponry, estimates of its strength, particularly for external
power projection may be exaggerated see The Economist 2007d
172
Lum 2006:5
168
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from recent developments and are in many cases removed from sources of
environmental degradation.173 If the effects of climate change were to affect
these groups in tangible ways, e.g. flooding of major cities or obvious incapacity
of the government to address adaptation issues, then the conditions for mass
movements across China might change.
If social movements in these two issue-specific areas (environmental degradation
and climate change) were to materialise in force they could be perceived by the
PRC leadership as challenges to the political system. Two main options would
then be open to the leadership, co-optation or repression. If repression is chosen
then the protest movement might gain strength, particularly if it had a large base
of latent support from the start. This in turn could also cause our hypothetical
social movement to broaden its original agenda in response. Such a broadened
agenda might include political reform or changes in the leadership structure (but
with the system intact). The probabilities of this occurring might increase if the
original problems, climate change effects and environmental degradation, are not
adequately addressed by the government.
As noted above, Sinologists and other China analysts who argue that the
resilience of China is often under-estimated do not deal with ecological factors or
directly with climate change. However, as noted by the Stern Report, the effects
of climate change could have a very negative impact on the world economy.
Such a development would directly affect China’s economy and thereby
potentially its political stability by triggering social movements and/or by
decreasing the regime’s capacities for control. Decreased growth or even an
economic recession could make certain parts of the population more exposed to
socio-economic hardships and possibly to climate change effects as well. In turn,
such exposure could make them more prone to social mobilisation and process.
An economic downturn would probably not impair the coercive apparatus of the
state that can be used internally, e.g. the police and armed forces, because –
given China’s history and dominant ideology – the government would take care
not to have its core capabilities affected. The more expansive and hence
expensive external capabilities of power projection, such as the plans for
constructing a blue water navy and other high-cost schemes of military
modernisation could however be affected.174 The real potential for destabilisation
would occur if groups that are insiders, or that belong to the middle classes that
provide crucial support to the legitimacy of the regime become dissatisfied or
find their social positions threatened.
173
Lum 2006:13 For a recent report on middle-class protest in China and their use of information
and communication technologies to mobilise, see The Economist 2007c
174
For a report on such plans see The Economist 2007e
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In addition to reinforcing China’s environmental problems, climate change may
bring problems of its own to China. One of the country’s chief vulnerabilities in
relation to climate change is the relocation of industries to the coast in cities like
Shanghai, Guangzhou (Canton) and the New Economic Zones (NEZ) from their
previous inland locations.175 This means that the main source of China’s
economic strength is now located in areas that are exposed to sea level rise and
flooding.176 This could prove detrimental not only to the Chinese economy as a
whole but also to that of its burgeoning middle class, which as we noted above, is
a key factor in determining the legitimacy of the regime and a potential key in
turning popular unrest among workers and farmers into a mass movement.
If mass movements that challenge the regime as a whole or the incumbent
leadership were to arise or – in the most dramatic scenario – if a systemic crisis
were to occur because of an economic downturn, the following consequences are
foreseeable. A systemic crisis of political legitimacy in China could be serious,
primarily to the world economy as it might affect foreign direct investment
(FDI), China’s manufacturing industry and forestall China’s possibilities of
becoming a player on the global financial markets. Secondarily, though, internal
unrest, possibly of such a magnitude as to warrant the label ‘systemic crisis’,
could have political ramifications, possibly in the form of a struggle over
leadership between elite groups. A possible scenario could be that the ruling
fraction that eventually does establish power would be more hard-line than the
present leadership. This in turn it might worsen China’s relations to its
neighbours, particularly if current patterns of international trade and economic
interdependence are disrupted. Furthermore, a Chinese government that is more
suspicious than the current regime might may also render collective diplomacy
through the UNSC more difficult. While such scenarios are worrying, it should
be stressed that they are several steps, each fraught with uncertainty, from
materialising. The two core questions that remain, however, and whether China
is capable of addressing and amending environmental degradation and climate
change effects and if the political system can be made more flexible so as to
accommodate protests and grievances without these being seen as challenges to
the entire system.
It should be noted that measures are being taken by the government that could
improve the environmental situation and strengthen China’s capacity to adapt to
175
176
Keidel 2007
Stern Review Report 2007:77
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climate change.177 Despite these promising signs, the combination of climate
change, environmental degradation and economic downturn could catch China in
a recursive movement between several factors that all contribute to instability
unless the problems outlined above are dealt with. The figure below illustrates
the argument pursued in this section by outlining interconnections between
problems and hypothetical developments, which are discussed in the text. The
seriousness of these problems is illustrated by the large number of factors that are
connected to each other and by the number of reinforcing feedbacks between
them. A brief study like the present cannot discuss the probability for each step
but taken together, render a situation of considerable risk.
A model of the connections between environmental degradation,
climate change and destabilisation in China
177
For an overview, see Zhi, Totten, and Chou, 2006 The Stern Review (2007c:xxiv) also notes that
‘China has adopted very ambitious domestic goals to reduce energy for each unit of GDP by 20%
from 2006-2010 and to promote the use of renewable energy’.
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The Southeast Asian subcomplex
As Finlay points out, Southeast Asia is one of the regions of the world that is
relatively unaffected by internal armed conflict.178 The stability of this region and
of the internal stability experienced in other Asian countries, e.g. South Korea, is
to a large extent the result of the vigorous economy, the growth of regional
institutions (ASEAN), and the decline in foreign intervention into the area.179
This development since the 1970s is remarkable given that the region was one of
the worlds poorest and most conflict-ridden in the 1950s and 1960s. In light of
these historical developments, the greatest concern for this region is how climate
change will affect the economy.
The South Asian RSC
The south Asian security complex is dominated by the relationship between India
and Pakistan. The patterns of the South Asian security seem to be remarkably
stable and, considering the consistency of the situation during and after the Cold
War, relatively immune to external influence.180 This relationship does not only
determine politics in the region but also has an impact on global politics since the
persistent rivalry with Pakistan prevents India from fully emerging as a global
player.181 Our main angle on the South Asian RSC under conditions of climate
change hence concerns how this relationship, which is the pivot of the politics of
this region, is affected by climate change. Given India’s military and political
dominance on the sub-continent, climate change will have major security policy
implications only in so far as the relationship between India and Pakistan, which
in part is a function of the strengths of the respective states, is changed.
Consequently, the key to the region’s future lies in Pakistan, a country marked by
civil unrest, collapse of the state level, corruption and stagnant economy and by
secessionist movements. Since the 1960s, Pakistan has decayed considerably and
consequently waned as a threat to India.182 The decline of Pakistan has given
India more room to manoeuvre, including making bids to global power status,
which has so far been denied it by the great powers. However, India has been
more successful in expanding its diplomatic sphere into other parts of Asia where
it may have greater potential for future success. In relation to climate change, the
emergence (but not complete escape) of India from its immediate security
environment in combination with its economic growth means that it is much
178
Finlay 1996:173
Finlay 1996:184-89
180
For a recent study of the persistence of the India-Pakistan conflict see Paul 2006
181
Buzan & Wæver 2004:121
182
Buzan & Wæver 2004:115-117
179
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better placed to become an active player in the global politics of mitigation of
and adaptation to climate change. If Pakistan were to suffer large-scale
destabilisation and decline, either due to strictly socio-economic reasons or in
combination with climate change effects a problematic but not necessarily
disastrous security situation would follow. Whether this will occur or not is,
however, beyond the scope of this report.
Bangladesh has been at the centre of a lot of attention in debates on climate
change and is likely to be affected by sea level rise as well as by flooding due to
increased precipitation levels. However, the security political effects that this will
have are dependent on the strength of the Bangladeshi state as well as on India’s
position. Should Bangladesh become a failed state, then India might intervene to
stabilise it as it did during the war of 1971, which transformed East Pakistan into
Bangladesh.
Could the effects of climate change, e.g. flooding, generate issues, e.g. refugees,
that could lead to conflicts at a sub-state level on both sides of the IndiaBangladesh border? This question is difficult to determine, as previus migration
from Bangladesh to West Bengal has “generated tensions” but so far failed to
create conflict between countries, regions and communities.183 Whether this
pattern of stability might change in the future hinges upon two factors, both of
which are difficult to predict -the number of future migrants and the leadership of
West Bengal.
The predictions of climate change in India as well as South-East Asia, estimates
have been made that in 2100 the costs of climate change could amount to as
much as 9-13% of GDP compared with a world without climate change.184 As an
example, recent heat-waves in India, coinciding with failure of the monsoon
rains, amounted to a 3% loss in GDP due to harvest failures.185 Climate change
may thus impair the economic development in countries like Bangladesh, India
and Pakistan. The effects of climate change on agriculture in South and SouthEast Asia are serious since this sector accounts for substantial shares of GDP as
well as employment rates.186 Based on an A2 emissions scenario, studies have
found that across northern India, crop yields may be reducedby between 30-60%,
with extremes up to 70%.187
183
Ganguly 1996:161
Stern Review Report 2007b:92
185
Stern Review Report 2007b:94
186
For example, agriculture accounts for 21% of GDP in India and 61% of the population of South
Asia are employed in this sector. Stern Review Report 2007b:95
187
Stern Review Report 2007b:104, footnote 58
184
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Due to its current climatic extremes (e.g. monsoon floods and dry-season
drought) the region is sensitive to even slight effects of climate change.188
Various reports have called attention to the melting of glaciers in the Himalayas
and the Hindu Kush mountains due to climate change. This may have a negative
impact on water supplies in India and Pakistan. This impact might consist of
flooding in the short term but reduced flows if or when the glaciers disappear.
Like elsewhere, cross-boundary waters are carefully regulated in international
treaties and in some cases managed through multilateral commissions. The most
important of these, in terms of both numbers of people affected and in terms of
the security political impacts is the Indus Water Treaty of 1960.189 Agriculture in
Pakistani territories has relied on water from the Indus for centuries but after the
partition of British India in 1947, the sources of the river were located in India.
Despite the hostile political relations between the two countries, they have
managed to resolve the issue of water rights through a deal that allots a generous
share of the Indus waters to Pakistan.190
Consequences of mitigation – adaptation measures
The most important aspects of the politics of mitigation and adaptation involving
Asian countries will probably be played out on a global rather than regional
level. Both China and India have expressed an unwillingness to concede
mitigation of emissions of greenhouse gases with reference to their right to
economic and industrial development. This stance puts them in opposition to the
EU in negotiations on climate change. Present and future political disagreements
are made more complicated by the issue’s link to development, world equity and
poverty issues. Instead of attempting to de-couple these issues from each other,
the potential deadlock between the EU and China and India could be resolved by
accepting the connection between climate change, development and global
equity. However, such arguments must attempt to shift the emphasis in this
connection away from strategies to amend poverty through fossil-fuel intensive
industrialisation. A strong instrument in this respect would be the argument that
unmitigated climate change and lack of adaptation measures to changes that will
occur due to emissions already made will impede development and poverty
reduction. In order to credible, such argumentation must be complemented by
technology transfers that enable developing countries to reduce their carbon
188
Stern Review Report 2007b:104
For the full text and commentary see
http://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/SOUTHASIAEXT/0,,contentM
DK:20320047~pagePK:146736~piPK:583444~theSitePK:223547,00.html access 20070810
190
Indus Water Treaty http://transboundarywaters.orst.edu/projects/casestudies/indus.htm. access
20070813
189
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emissions, increase energy efficiency and deal with the impacts of climate
change.
3.2.4
The South American Regional Security Complex
Introduction
South America191 is a region that is interesting to compare with Africa because of
the similarities in terrain, presence of armed militias and relative weakness of the
state but also because of the differences; namely South America’s relatively
strong and industrialised economies and, in most cases, accountable
governments. It provides an interesting bridge to the Asian regions due to the
ambiguous character of the state in South America, which is strong enough not to
fall apart like in some parts of Africa, but at the same time not so strong as to be
able to mobilise for war and conquest.192 Because of its fledgling but
nevertheless resilient international institutions, most importantly Mercosur, it is
also an important object of comparison with similarly institutionalised areas,
Europe/EU and South-East Asia (ASEAN). In order to probe the possible ways
climate change could affect security politics in the region, the same approach as
in the previous section is applied, with an analysis the nature of the state,
international relations and external penetration in the region and examination of
whether these factors are likely to be seriously affected by climate change. The
issue of state interaction capacity is also addressed. There follows a discussion
on how the basic geopolitical conditions, i.e. terrain, may be affected by climate
change and how such changes could affect security politics. Consequences of
mitigation and adaptation policies in the region as well as on a global level are
also discussed. The section concludes with what is called a ‘wild card’, the
consequences of climate change in the Antarctic.
States and International Relations
As noted above states in South America can appear rather ambiguous since the
state level in most cases is quite strong but it does not penetrate all of civil
society, a trait that accounts for the huge disparities in income and for the many
fractures and divisions in the societies of the continent. South American states do
not however have the same patrimonial, predatory and regime-like character as
191
South America has for some time been divided into two relatively separate sub-regions, the
Southern Cone (Argentina, Bolivia, Brazil, Chile, Paraguay, and Uruguay) and the Andean North
(Colombia, Ecuador, French Guiana, Guyana, Peru, Suriname, and Venezuela). This section will
take this division into account. Buzan & Wæver 2004:336
192
Buzan & Wæver 2004:312 (following Hurrell 1998:239)
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many states in Africa. Despite the strong tradition of populism in many countries,
states that are clearly separated from the regime in power are firmly entrenched
in South America, which is a great in comparison with Africa. For this reason,
although climate change effects as well as the economic downturn that could
result from unmitigated climate change, may lead to significant losses in state
interaction capacity, the effects may not be as corrosive. However, given South
America’s much greater role and future potential in the world economy, a
development that would weaken and/or destabilise the countries of the continent
would have more serious global ramifications.
As in most regions surveyed in this report, the most important consequences of
climate change for security politics will probably fall within states rather than
between them. Although the states of South America are not as poorly integrated
as those of Central and West Africa, they are nonetheless fraught with tensions
and huge disparities in standards of living and income. This is worrying for
several reasons. 1) Such differences impede the growth of these countries’
economies, a central factor in creating adaptation capacities. 2) The differences
in economic standard are in themselves corrosive and might disrupt societal
stability, which is also necessary for societies to be resilient in the face of climate
change. 3) the differences between large segments of the population in
practically every country in the region means that climate change will have
highly unequal effects on different socio-economic strata. Combining traits of the
‘first world’ and the ‘third world’ within closed geographical confines, South
American countries are miniatures of the global differences in affliction by and
adaptation capacities to climate change. This may in itself be destabilising since
economic differences may either become politicised on a mass scale or give rise
to collective action against the authorities or between local communities (i.e.
urban-rural unrest). Furthermore, the economic straits that climate change could
bring would be a huge blow to policies of social development and reduction of
poverty around 2050, possibly permanently impairing such efforts. To avoid
fissures becoming fractures in the face of the economic, social and potentially
political strains that climate change may bring in the future, reduction inmass
poverty in a sustainable way the next twenty to thirty years ought to be a top
priority for South America.
Concerning international relations, South America has a relatively long history of
conflicts and patterns of regional politics that are not shaped by the colonial past
but that are indigenous to the region. There were significant interstate wars
throughout the nineteenth century during which the borders of the modern states
of the region were established. The fact that there have been relatively few wars
between states in South America is, as noted above, due partly to the character of
the state, but partly to the harsh and difficult terrain that separates the core areas
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of the states from each other. A number of terrain types, the Andes mountains,
dense jungles and harsh deserts to name a few have impeded contact between the
South American states and provided most of them with effective natural
defences. Although the states are not as isolated from each other as in parts of
Africa, the region nevertheless is only moderately integrated. An example of this
fact is that even the most persistent security relationships, e.g. Chile-Brazil, have
not solidified into a European-style balance of power.193
The structure of the international system in the Southern Cone has also
influenced this pattern, with two major actors, Argentina and Brazil, and
numerous smaller actors. The dominance of Brazil in particular has played an
important role as a regional stabiliser for the Southern Cone as well as for the
Andean North. The country has gradually become a status quo power in the
region and a positive turn towards stability was achieved through Argentina’s
acceptance of and support for this role. 194 Overall, conflicts in South America
have been largely on a sub-state level with governments, paramilitary militias
(Colombia), drug lords (Colombia), insurgents (Bolivia), crime syndicates
(Brazil) as principal protagonists. Arguing deductively, there is little to suggest
that this pattern in susceptible to change due to climate change.
Since the 1980s and the end of the military governments in the Southern Cone,
dramatic changes have occurred in the international relations of the region. The
coming to power of elected and accountable governments has reduced the role of
the military forces in Brazil and Argentina and, since the 1990s, in Chile. One
effect of this has been the desecuritisation of international relations and internal
affairs. In the terminology of Buzan & Wæver, the region has been transformed
from a conflict formation to something more akin to a security community. The
three principal components of this change are 1) the rapprochement between
Brazil and Argentina, 2) the regional integration in Mercosur and 3) the
resolution of border questions.195 Particularly noteworthy is the stabilisation of
the region through the collaboration between the states of the region through
Mercosur. This collaboration has also boosted the economies of the region,
which together with the increasing democratisation, has furthered stabilisation.196
The crucial question for the future of South America is how solid the
reorientation of the region into its current state is.197 The fact that both Brazil and
Argentina refrained from reverting to old confrontational patterns during the
193
Buzan & Wæver 2004:316-17
Buzan & Wæver 2004:313-14
195
Buzan & Wæver 2004:322-23
196
Buzan & Wæver 2004:324
197
Buzan & Wæver 2004:338
194
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Asian financial crisis and economic chaos in Argentina in the later 1990s is a
promising sign of lasting change. However, the recent and unexpected nature of
this reorientation should serve as a cautionary tale against over-confidence in
making prognoses for the future.
Conflict dynamics in South America have been significantly influenced by
outside penetration, primarily by the United States. This was the case during the
Cold War, when the ideological struggle of the period reinforced tensions within
South American societies, as well as during the 1990s, with the US as a major
actor in the war on drugs in Colombia. The necessity of taking a position vis-àvis the US has also played into international dynamics in the area. In a South
American context, whether a country has chosen alignment with or rejection of
the US has meant taking a position on external dominance in regional diplomacy.
The current anti-Americanism of the Venezuelan President Hugo Chavez and to
a certain extent of his Bolivian counterpart Evo Morales should be understood in
this context.
South American politics could be influenced in this respect not so much by
climate change itself but by the politics of mitigating and adapting to climate
change. It is conceivable that some leaders may try to use this issue as a way of
building anti-American coalitions in order to bolster their standing in the region.
Such schemes could be outlined both by rejecting mitigation efforts as a plan of
the developed countries to thwart the industrialisation of the developing world
and by blaming the developed countries, among them the US, for the adverse
effects of climate change. The force of such hypothetical policies is hard to
gauge but could be argued to be influenced by several conditions: The gravity of
the consequences of climate change for South America, dominant currents in
international relations in South America, the position of the US in the politics of
climate change andits diplomatic astuteness and the positions of the leading
states of South America, Argentina and Brazil, vis-à-vis the US.
The outcome of such, again hypothetical, external influence on regional
dynamics depends on many other factors in intra-regional relations. Considering
that the current efforts of President Chavez to create a counter-balance to the US
are more of an irritant than a multiplier of tensions in the region, a tenser overall
political climate is probably required for climate-change related antiAmericanism to become a significant factor in security politics. Although it
might increase tensions, it is unlikely to be a cause of conflict in itself.
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Geopolitical Changes
Considering that the geography of South America has been an important factor in
limiting inter-state conflict and in providing various kinds of terrain conducive to
insurgents could climate change possibly change this element of the region’s
political landscape? First of all, the biggest topographical change that the
continent is undergoing now and over the coming fifty years is man-made,
although significantly connected to climate change: the destruction of the
Amazonian rainforest. Since the effects of this process on climate change has
been dealt elsewhere, the following deals only with the impacts of this process on
security politics.
Brazil’s exploitation/development of its Amazonian provinces will bring its
settled and economically developed areas closer to neighbouring states such as
Ecuador, Peru and Colombia. Although the reduction in the natural buffer area of
the rainforest is not likely in itself to lead to increased security interaction, for
example through increased contact between Brazilian security forces and
guerrillas from Colombia seeking refuge across the border, it changes the
geographical conditions of military action in the Andean North.
Could the environmental protection and mitigation of climate change become a
security issue in South America? Tendencies to ‘internationalize’ Amazonia, to
cast the status of the area and its rainforests as a global matter of concern, have
been seen in some military circles and in very extreme scenarios as worrisome to
Brazil.198 This is due not only to the fact that it is part of the territory of Brazil,
also that it is also a region of great resources and the Amazon has always had a
special place in Brazilian narratives about nationhood, similar to that of the
frontier’ in US national narratives. Although international interventions to save
the rainforests are probably too spectacular to materialise without substantial
changes taking place in international politics in the near future, steps need to be
taken to assuage all and any security fears on the part of the Brazilian
establishment in connection with conservationist policies and the efforts to
preserve the Amazon rainforest, not least as a carbon dioxide sink. Exploitation
of the Amazon through a large-scale destruction of the rainforest is an issue that
might worsen Brazil’s diplomatic reputation in a future world in which
environmental protection and combating climate change have become dominant
themes.
198
Buzan & Wæver 2004:332-333
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Consequences of Mitigation – Adaptation Measures
The B2 scenario of the IPCC presumes reductions in global fossil fuel use and a
greater emphasis on technologies that do not lead to emissions of greenhouse
gasses. Brazil is the world’s second largest producer and largest exporter of sugar
cane based ethanol.199 The country is also the world leader in use of ethanol and
has a large degree of hydropower in its energy portfolio.200 This means that
Brazil, a stabilising regional hegemon and the leading economy in South
America, stands a chance of being resilient under a scenario of decreased fossil
fuel use. This in turn, this bodes well for the stability of the Southern Cone, and
possibly for the northern part of the continent as well. Not only is a strong
Brazilian economy an important factor in preserving internal stability, democracy
and development, it is also important for the economy of the region as a whole.
In the last instance, an economically strong Brazil means that its interaction
capacity remains intact which means that in the event of the security situation in
any of the neighbouring countries becoming problematic, then Brazil’s role as a
stabilising power and possibly peacekeeper might still be functional.
In the Andean North, the positions of some states that will affect the international
politics of the region, also hinge upon whether the world will continue its current
fossil-fuel intensive development path. The international role of Venezuela,
currently a major exporter of oil201, hinges upon how demand for fossil fuels
develops. The country is highly dependent on oil, which accounts for 90% of
export earnings and more than 50% of the federal budget reserves.202
Consequently, a future scenario that includes significant reduction in fossil fuel
use would seriously impair the ability of Venezuela to pursue expansive foreign
policies.
The Antarctic ‘Wild Card’
The section below deals with the future of the Antarctic, an issue involving the
South American RSC that has featured as possible security concerns in more
speculative and/or long-range scenarios. In the section on the Arctic (Section
4.2), we argue that climate change may transform the region into one of far
greater importance for security politics. The situation in the Antarctic is
199
http://www.worldenergyoutlook.org/fact_sheets/fs_brazil.pdf access 20070718 for statistics see
http://www.iea.org/Textbase/stats/renewdata.asp?COUNTRY_CODE=BR access 20070718
200
OECD/IEA (2006) The Energy Situation in Brazil: an Overview
http://www.iea.org/textbase/papers/2006/brazil.pdf access 20070718 p.2, 11-12
201
For statistics, see http://www.iea.org/Textbase/stats/oildata.asp?COUNTRY_CODE=VE access
20070718
202
https://www.cia.gov/library/publications/the-world-factbook/geos/ve.html#Econ access
20070718
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somewhat different for several reasons. The IPCC reckons that ‘[a]t the end of
the 21st century, the annual warming over the Antarctic continent is moderate but
significant’.203 Although global warming could in the long run, i.e. beyond 2100,
“initiate millennial-scale processes with the potential to cause irreversible
impacts on ice sheets, global ocean circulation, and sea level rise” the IPCC
notes that ‘[e]xcept in the Antarctic Peninsula, the Antarctic and the Southern
Ocean will probably respond slowly to climate change’.204 Hence by 2050,
current conditions the Antarctic are unlikely to have changed. Beyond this
period, the region could become important in the distant future and the stakes
involved are potentially quite high.205 It should be noted that if the Antarctic
were to warm sufficiently to allow resource extraction, settlements or possible
military operations, then the world’s leaders would have far more serious issues
on their hands, given the degree of sea level rise this development would entail.
Within the period that this report covers, however, the Antarctic, an area where
international politics have been locked in place by the 1961 Antarctic Treaty
System (ATS), is not likely to become the focus of conflicts due to climate
change or for any other reason. Logically the Antarctic continent could become
important for security interactions for the following reasons:
1. The climate changes so much in the Antarctic that it becomes possible to
exploit mineral resources or fisheries. This seems very unlikely to happen in
the near future due to climate change.
2. Climate change would lead to an increase in the strategic importance of
communications. This is also very difficult to envision since there are no
gains to be made through reduced transportation costs over the South Pole
and climate conditions will not change to the same extent as in the north.
3. Perceptions of security relations become much more securitised among the
countries that have a stake in the Antarctic (i.e. the partners to the 1961
ATS) which would lead to a revision of the treaty and a scramble for
positioning in the Antarctic. The international expertise on climate change
has not given any indication that the Antarctic climate will change
sufficiently to warrant perceptions that the area would gain in strategic
importance. Furthermore, because the extremely adverse climate conditions
in the area are unlikely to change in the near future the logistical
preconditions of basing troops or other personnel in the area will be too
difficult to warrant the effort. If security relations between the ATS parties
203
Christiansen et al2007:908
IPCC 2001b:831
205
Buzan & Wæver 2004:316
204
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were to deteriorate for whatever reason, the changed relationship would
probably be expressed in other more accessible areas than Antarctica.
3.2.5
The West European Great Power Subcomplex
Introduction
It is very difficult in general to draw up scenarios for the evolution of new
political forms, and within the scope of the present study such a task cannot be
undertaken. Nevertheless it is a question that underlines all scenarios or
speculations involving the future of Europe –what will the EU look like in the
future? Given the EU’s current ambitions to play a larger international role, this
question may also have implications beyond its borders as well. The stratagem
used in this study is to assume the existence of the EU in the basic form that it
has today, a mix between a states-system and a common polity, giving it
elements of great power concert, (heavily modified) inter-state dynamics and a
form of state. By 2050, we assume that the Balkan states will have become
members. However, for each region possible consequences of developments that
today, in 2007, remain uncertain, such as the membership of Turkey or a more
robust and institutionalised capacity for power projection are discussed.
Nevertheless, in both this and following analyses, the possibility of fissures
within the EU must not be excluded; they are indeed crucial hypothetical objects
of research.
Consequences for the EU
Research on how climate change could affect politics within the EU, in particular
with regard to the stability of the Union, is non-existent. Research has been
produced on the climate policies of the EU on regional and on international level,
but non on the political and social effects of climate change on Europe itself.206
In general, there is very little research on what kind of developments,
endogenous and exogenous, that could endanger the stability of the EU or on
how the EU reacts to crises that could destabilise or even fragment it.207 The
security strategy of the EU brings up global warming as a contributing factor to
future instability and threats to security, but only in relation to processes outside
of Europe.208 Although plenty of research is underway on the technical issues of
206
See for instance Egenhofer, Jansen, Bakker & Hammes 2006 and Peeters, & Deketelaere (eds.)
2006
207
An exception is Haldén 2006
208
It should be noted that climate change features only marginally in the security strategy of the EU
European Union 2003:6 & 15
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adaptation and mitigation, no policies have been drafted and very little
systematic discussion has been undertaken on how to avoid grievous social and
political consequences within Europe. In contrast to earlier research of the
aforementioned kind, this section treats the question of whether climate change
could weaken the stability of the EU and thereby of the security of Europe. A
fundamental assumption in this study is that the EU has played a crucial role in
providing Europe with security since 1945. The conclusion is that climate change
confronts the EU with a series of challenges but its destabilising potential
depends to a large extent on decisions and event within other issue areas. The
text below develops the argument.
According to the climate change scenarios developed by the IPCC, Europe will
be very unevenly affected by climate change.209 The warming in Europe will be
higher than the global average and the warming in Northern Europe will occur
during the winter season whereas in Southern Europe and the Mediterranean
areas it will occur in during the summer season.210 Such developments will
entail, at least in the short run, certain advantages for Northern Europe, such as
longer growth seasons whereas they may entail considerable strains on Southern
Europe. The latter will principally comprise increased stress on agriculture due to
droughts, heat-waves and water shortages. This will have negative add-on effects
on their economies, a development probably aggravated by the losses which are
expected for the tourist industry. However, certain aspects of energy production
may also be affected. Apart from such effects societies in Southern Europe may
also be under strain within the health sector. However, up until the middle of this
century increases in temperature will probably not be so great as to render
substantial areas of Southern Europe uninhabitable.
An understanding of the consequences for European agriculture is highly
relevant toin ascertaining the conflict-inducing potential of climate change for
Europe and for the EU. Classical geopolitical literature emphasises the
importance of being able to support the population for the survival of a country.
211
These arguments may seem arcane in this day and age and in our part of the
world but the basic issue remains as a precondition of social stability. Up until
the year 2050, the upper limit of this study, Europe will probably not experience
any substantial problems in safeguarding food security for its population. For
instance, according to the IPCC, production of wheat in central Europe and the
British isles will probably increase whereas it will decrease in certain parts (but
209
cf. Christiansen et. al. 2007:875
IPCC 2007b:872
211
For reviews of this literature see Parker 1998 and Gray & Sloan (eds.) 1999. A classic that treats
the connection between the supply of foodstuffs and strategy is Spykman 1944
210
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not all) of Southern Europe. 212 Production of potatoes will increase or remain
unaffected, as will production of energy crops. However, the outstanding issue is
to ensure that there are working mechanisms for a European market for
foodstuffs in order that areas experiencing difficulties with food production are
provided access to surplus food produced elsewhere. It is worthwhile
emphasising that subsidies at state or EU-level may be necessary due to the
problematic consequences that may ensue if a free market regime cannot
guarantee food security.
This raises the question of the future of the Common Agricultural Policy (CAP),
which today subsidises large parts of the European agriculture. 213 The original
function of the CAP was to ensure that Europe/EEC would be self-sufficient in
the event of a significantly worsened international political climate. 214 This
purpose has to some extent fallen into oblivion and figures only to a marginal
extent in the contemporary debates on the CAP. However, in a future where
regions that are currently global exporters of food stuffs are unable to export
cereals, vegetables and meat due to droughts (e.g. Australia and New Zeeland)215
and where a reduction of long-distance transports is necessary in order to cut
CO2-emissions a maintained consistently strong European agriculture could
prove to be a significant strategic asset. Maintaining this strength of European
agriculture could also be seen as a measure for mitigation and adaptation to
climate change.
Could the European agriculture policy constitute a future reason for conflict?
Under the condition that the EU is intact and works in roughly the same way as it
does today, the potential conflicts would be political rather than military in
nature. However, it would be important to introduce increased flexibility in the
CAP which would enable support to be redirected at relatively short notice to
areas that are affected by drought, floods, or extreme weather events to a greater
extent than is possible under the current regulations. Such a reform would be
212
IPCC 2001b:668-69 & IPCC 2007a:9-10
The CAP cost 43 billion euro in 2004
http://ec.europa.eu/agriculture/publi/capexplained/cap_en.pdf access 20070511 s.29
214
Nugent 2003:387
215
At the time of writing, Australia is affected by a difficult and long drought that threatens the
agriculture in the entire Murray-Darling river basin. According to David Dreverman, head of the
Murray-Darling river basin commission, this drought is a so-called 1000-year event.
http://www.guardian.co.uk/australia/story/0,,1941942,00.html accessed 20070508. If events of
this kind become more common in the future it will lead to great uncertainties concerning the
country’s export of agricultural products. See
http://www.bbc.co.uk/weather/world/news/19062005news.shtml accessed 20070508 For as
ummary of Australia’s climate under April 2007 see Australian Monthly Climate Summary: April
2007 For an estimate by the IPCC see IPCC 2007b:9
213
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particularly important since the volatility of harvests could come to increase in
comparison with today’s conditions.216
An important issue of future priorities could be whether pastures should be used
for the cultivation of energy crops or for the cultivation of foodstuffs. A
transition to more European-produced goods on the consumer markets of Europe
could be seen as a part of a strategy to cap emissions. If this leads to increased
demand for agricultural land then the necessity of making strategic prioritisations
between foodstuff production and production of energy crops increases. The
same applies if the EU member states decide that increased production of energy
crops is a suitable way to decrease dependence on fossil fuels.
It is evident that the future will bring great challenges and strains from both an
environmental and climate perspective, even if we choose to adopt
comprehensive mitigation/adaptation strategies, but even more so if we fail to
adopt such strategies. In a global situation of the kind that we may face in 2050
this report stresses that it is important that permanent fissures and/or formal
subdivisions have not been created within the EU. From time to time proposals
are launched that aim to divide the Union into formalised sub-groups with
various degrees of integration. Even if such divisions were without destabilising
effects in periods of international calm, this could create the preconditions for
conflicts under more adverse international conditions. For this reason, the report
argues that it is important that the EU remains intact and that the EU member
states tackle future challenges and adaptation measures jointly in order to
safeguard stability on the European continent. This argument may seem fanciful
but sixty years ago when neither the EU nor NATO existed to channel
international relations in Europe into peaceful intercourse, the preconditions for
conflict were very different from what they are now. Unless the stability of the
EU is safeguarded –and such measures largely take place in policy areas other
than those directly relating to climate change– we could see a reversal to
conditions like those prevailing previous to 1945, especially if the international
system becomes more unstable and if many states experience considerable stress,
e.g. from climate change.
Just like on the international level mitigation and adaptation measures may lead
to conflicts within the EU. These conflicts are likely to be played out between
interest groups on national levels as well as between governments and interest
groups on an EU level but probably to a lesser extent on an inter-state level.
Inter-state dynamics of conflict, although probably not likely of a military kind,
may come into play since many mitigation and adaptation measures may require
216
IPCC 2001a:667-69
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joint EU measures, actions or financing. To the extent that such measures require
additional integration of the EU, open as well as latent conflict dynamics
between different member states in the overarching question of more or less
integration could also be brought into play.
The issue of climate refugees has been raised in connection with the EU in
negative terms, i.e. as a threat.217 However, considering the negative demography
in many European countries, increased immigration may, if it is carefully
managed and if steps are taken to integrate the immigrants, may be a solution to
the negative demographic trend. In other words, and contrary to much of the
current popular debate, migration is not exclusively problematic nor are the
problems that migration may entail inherent in it as a phenomenon. Even more
important is the task of adopting coherent policies on immigration. As noted
above, failure to produce such a policy or manage either the negative effects of
climate change or emigration from the Maghreb may have grievous and
destabilising effects on the countries along the southern Mediterranean coast.
Examples of outstanding questions regarding the EU and climate change are
whether joint endeavours will be needed to protect coastlines that are exposed to
sea level rise? Will this aim require new structural funds? As a consequence new
challenges to EU solidarity could arise if such measures are not formally
institutionalised and/or executed successfully. A complicating matter is the
Europe’s coastal states are unequally affected, e.g. Poland worse than Germany.
217
CNA 2007:9
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4 Thematic Issues of the Interface
between Climate Change and
International Security
This section deals with a number of themes independently and more in-depth
than in the regional analyses of the previous section. It is hoped that this
approach will make it easier for the reader who is interested in a specific topic go
obtain direct access to an analysis of the problems connected with the issue.
Although none of these issues can be treated in isolation, either from other issues
or from the general context of the climate change scenarios, this approach is also
a way to give particular attention and detailed coverage of issues that are central
to scholarly debates, public attention or to security policies. Of course, it goes
without saying that these concerns are intertwined and each theme is important to
all three. Each theme is introduced separately under its own heading.
4.1 Strategies of Adaptation and Conflicts
4.1.1
Introduction
So far, this report has dealt with the relationship between climate change and
conflict in a linear way by discussing, exploring and sometimes criticising the
idea that the former may, in different and sometimes roundabout ways, lead to
the latter. The role of adaptation in that equation has been of inhibiting, avoiding
or softening the relationship between climate change and conflict. This section
continues the exploration by inquiring about the recursive nature of adaptation
and conflict, in other words, the potential ways in which adaptation to climate
change could provide permissive causes for conflict.218
The notion of risk society as a feature of late modernity was first formulated in
connection with environmental degradation in the 1980s by Ulrich Beck. This
train of social theorising has gained in strength over the past decades and
branched out into several different fields, including strategic studies.219 The field
of risk sociology now includes many of the most well-known sociologists such as
218
This inquiry is thus very much in the vein of the work of the sociologist Ulrich Beck (1985) who
in his book Risikogesellchaft explores the ways solutions to contemporary and past solutions to
political, social and technological problems in themselves create risks which in some cases turn
into threats.
219
See for instance Rasmussen 2006
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Anthony Giddens and Niklas Luhmann. What defines a risk as opposed to a
threat is that it is a future unknown that could affect us negatively. A guiding
idea is that modern society creates its own risks and vulnerabilities, for instance
that industrial development created environmental degradation which in turn
presents a risk to the former. Put more simply, a risk generated by an activity
which in itself not harmful is a kind of boomerang effect. Once we become
aware of risks, or preoccupied with them as in contemporary society, we begin to
take measures to alleviate risks. However, attempts to do so may in turn create
new risks of their own, a double-boomerang effect, as it were. In the words of
Lupton ‘risk meanings and strategies are attempts to tame uncertainty, but often
have the paradoxical effect of increasing anxiety about risk through the intensity
of their focus and concern’.220 Adaptation to climate change can be taken as an
instance of this process. The first part of this section pursues the inquiry in
relation to adaptation on an international level and the second in relation to the
domestic level. The second part also deals with psycho-social aspects of how
societies tackle the effects of climate change itself, and not only mitigation or
adaptation aspects.
4.1.2
Adaptation Strategies and International Conflict
Differences between countries in how they adopt a less fossil-intense form of
capitalism and adapt to climate change could alter regional balances of power.
Both kinds of adaptation could affect state strength, in the first case by ensuring
energy security in relation to industrial production, transportation and the armed
forces and in the second by making the country and its economy more resilient to
droughts, floods and other climate change effects. It is important to note that
changes in state strength matter to international politics under particular
circumstances, for instance when a very hostile and precarious balance exists or
when a country is surrounded by opportunistic neighbours. Barring such
circumstances, the effects of relative differences may not be as important. This
said, this report stresses that it is necessary to take the regional context into
account when strengthening adaptation capacities, e.g. through development aid,
so that inequalities in abilities to respond to climate change does not alter
regional balances of power where these are tenuous and war-prone, thus
exacerbating negative security dynamics.
Perhaps the clearest example of the generation of risk by attempts to avert risk in
this context is militarisation of the issue of climate change in anticipation of
‘climate conflicts’ or more drastically still, ‘climate wars’. An area in which such
220
Lupton 1999:13, cited in Rasmussen 2006:40
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discourses seem to have found fertile ground concerns the future exploitation of
the Arctic, in which Canada and Russia are currently working to pre-empt future
losses (or, actually the non-appearance of future gains) due to anticipated ‘land
grabs’ by the other side. More worrying still, is the tendency of the media and
analysts to willingly play into this process.
The opposing risks of generation of military risks through militarisation of
climate change and the generation of climate risks through inaction and
downplaying of the seriousness of climate change are the Scylla and Charybdis
that politicians have to navigate through. As this report has tried to emphasise,
even options that seek to alleviate the most deleterious risks in turn generate
risks. Consequently, absolute security is and remains, unobtainable. Attempts to
seek absolute security in fact may generate more risks than other options because
their originators remain unaware of this possibility and in fact realise their aims
by blinding themselves to the recursive nature of risk-generation.221 In order to
strengthen the awareness of such processes and to support decision-making, the
conclusions compare different emissions scenarios on the basis of ascertaining
the least risky but nevertheless not absolutely ‘safe’ option. In the words of
Rasmussen:
In risk society the political process is about
choosing which risk to act upon, which to ignore
and how to deal with the new risks that arise as a
consequence of your actions.222
Domestic strategies of adaptation to climate change have got very tangible
military-strategic implications through the question of energy efficiency. In many
conceivable futures, civilian and military users of energy may well compete over
dwindling resources. Therefore states that have managed to cut down on their
civilian consumption (or make this more efficient) without damaging effects to
public health, morale (with concurrent effects on state legitimacy), the economy
etc, will experience significant advantages in the power-political/military field
since they will have more energy resources to place at its disposal.
4.1.3
Adaptation strategies and domestic conflict
The more important aspects of social cohesion in relation to climate change are
however more subtle. The ability to secure public acceptance of adaptation
strategies will be a crucial factor in the success of their implementation and in
221
Some of the problems with seeking absolute security are classically demonstrated by Kissinger
2000
222
Rasmussen 2006:88
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securing legitimacy for the government or, in extreme cases, of the state itself.
This policy field is important because adaptation strategies inevitably entail
large-scale and deep changes in lifestyle (or even life-cycle) patterns. Whether
the public will accept and assist in the implementation of adaptation strategies
hinges upon the degree to which it perceives itself to be deprived of material
comforts and of psycho-social habitus. Wide-spread feelings of deprivation can
bring feelings of inequity and resentment which can provide grounds for social
tensions. It is important that the public accepts the necessity and justice of
changes in personal lifestyles as well as in wider social patterns that mitigation
and adaptation schemes entail. It is also important that such schemes are carried
out in a way that is perceived to be equitable and fair and one that does not affect
different segments of the population in widely different ways. The ability not
only to convince their citizenry of the necessity of undergoing such changes and
of the ways in which they are implemented but also to produce narratives that
give meaning to these changes as positive and proactive rather than difficult to
understand, forced and negative in terms of living conditions will be an
important asset. Difficulties in convincing members of the organisation, or
winning their “hearts and minds” as it were, are encountered in all cases of
thorough reforms.223 Large-scale social changes, particularly if they need to be
consciously led by governments, would arguably encounter such problems as
well.
Large-scale social changes bring about wide-spread feelings of social dislocation
that sociologists call ‘anomie’. This was an important aspect of the changes in
mentalities, lifestyles and world-views that many people in Europe and America
experienced around the turn of the last century in connection with the transition
from agricultural to industrial societies. The founding fathers of the discipline of
sociology, e.g. Émile Durkheim, Karl Marx, Ferdinand Tönnies and Max Weber,
were very concerned with how to maintain, or create, social cohesion in the face
of such fundamental upheavals. It is beyond the scope and capacity of this report
to gauge the extent of social changes on macro-level (i.e. the organisation of
society) as well as on micro-levels (i.e. individual lifestyles) that either early
mitigation efforts, e.g. reducing greenhouse gas emissions by 30% by 2020224, or
later adaptation efforts will bring. The latter will probably entail larger changes
although at a later date, perhaps beyond 2050, since societies will then face the
waning of fossil fuels as well as more severe effects of climate change.
Regardless of the extent of such changes, the question of securing political
223 224
This goal was agreed upon by the member states of the European Union at the summit in
Brussels on May 2007. [Ref bbc.co.uk]
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legitimacy for action and reform remains highly relevant, as do the questions of
mental preparedness and equitable distribution of changes.
The problems of social cohesion and legitimacy will also be felt in countries that
do not engage in policies of mitigation and adaptation, perhaps to a greater extent
than in countries that are able and willing to raise the general level of
preparedness. The problematic effects associated with climate change scenarios,
which will become stronger as we proceed into the 21st century and which will
vary with the level of stabilisation of the greenhouse gas emissions (i.e. as they
differ between the IPCC scenarios) will challenge societies with respect to social
cohesion and legitimacy of the political system. One way in which the legitimacy
of political systems could be damaged is if the population perceives that they
have been insufficiently warned and that previous generations of politicians
should have taken more forceful action. Since it will not be possible to direct
such feelings of betrayal will not be possible to direct at incumbent politicians
they may instead be directed at the political system itself, e.g. representative
democracy (e.g. in Europe) or secular government (e.g. in the Middle East). In
other words, not acting now might endanger the future stability of many different
political systems. As suggested above further challenges to the legitimacy of the
government or indeed to the state itself might arise if climate change effects
afflict different parts of the population very differently. Societies without major
economic, ethnic, political or religious ‘fault lines’ between segments of the
population can be expected to fare better than those marred by such fissures. We
therefore conclude that the issue of equity (absolute, relative and perceived) in
relation to the effects of mitigation adaptation to and impact of climate change is
as important in the domestic sphere as it is in the international sphere.
4.2 The Strategic Importance of the Arctic
4.2.1
Introduction
One of the most important theorists of geopolitics, Nicholas Spykman, argued in
1944 that, theoretically, air and sea lanes over the Arctic region could be highly
significant. However, given the climatic conditions in the area, Spykman
concluded that the northern maritime zone was unlikely to increase its relative
importance.225 Climate change may make this prediction obsolete. As has been
made clear by several reports by the IPCC, the Polar Regions are likely to be one
of the areas most strongly affected by climate change. Not only will changes in
225
Spykman, Nicholas 1944:17
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climate, primarily in terms of temperature, be most significant in these regions
but the changes in the landscape that they entail will be most dramatic. As
summer temperatures increase the ice caps will melt, primarily in the Arctic. Ice
levels in Antarctica may not be as drastically affected due to increasing levels of
precipitation. Even though the littoral areas of the Arctic sea will probably not
become temperate areas suitable for large-scale human settlement within the
time-span of the present study, climate change can substantially affect the
geopolitics of the area.226 This sub-section deals with three issues: the
establishment of new sea lanes in Arctic waters, the possibilities of exploitation
of natural resources on the seabed, and the thawing of permafrost in Polar
Regions. Thus it aims at clarification of the issues at hand rather than at
providing conclusive answers. Thereby further and more detailed studies may
hopefully be generated. The image below illustrates the projected changes in icecover over the Arctic in the summer (June, July, August).227
Sea lanes
Over the coming twenty to thirty years, new sea lanes might open due to the
melting of Arctic ice, at least during the summer.228 This possibility could be
attractive for shipping between Europe and China but also between Europe and
the American Pacific because the shorter distances compared with today’s
226
cf. Spykman 1944:18
Source:www.grida.no
228
Åtland 2003
227
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shipping routes.229 This is not in itself a cause for conflict, but it certainly
represents a changed geopolitical condition. Shorter lines of transportation could
entail decreased costs and therefore be beneficial to the economies of the
Northern Hemisphere. The image below illustrates the possible sea routes under
changed climate conditions230
The Convention of the Law of the Sea from 1982 divides the waters of the world
into three principal categories: Internal waters, territorial sea and the high seas.
We will here be concerned with the international legal issues involved with the
latter two. Territorial waters are the body of water that is closest to the land of a
coastal country. Although the extent of such territorial waters has seen many
legal controversies over the years, states have largely respected a limit of twelve
(nautical) miles.231 Global warming and the melting of ice caps over the Arctic
sea will probably not proceed at such a rapid pace so as to enable shipping that
does not at some point or another cross the territorial waters of coastal countries.
Therefore, we will now proceed to take a look at the legal circumstances
involving the territorial waters.
229
For example the sailing distance from Hamburg to Yokohama through the northeast passage is
6920 nautical miles whereas the same voyage through the Suez Canal is 11073 nautical miles
long. Åtland 2003:38
230
Naturally, the creation of new shipping lanes through the Arctic would entail substantial strain on
the fragile ecosystems of the Arctic that would already be under stress from climate change. The
image below is from http://www.unep.org/geo/geo%5Fice/images/full/5_routes.png
231
Akehurst 1997:180 One international nautical mile is 1.852 metres Encyclopaedia Britannica
(Micropaedia) Vol. VI p.886
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The coastal state exercises sovereignty over its territorial waters, but it is
circumscribed in one crucial respect, namely that foreign vessels have the right to
“innocent passage” through the territorial waters.232 The coastal state must not
hinder innocent passage, although it can make the claim that passage is not
innocent if it is ‘prejudicial to the peace, good order or security of the coastal
state.’ Provided that the areas in question do not constitute ‘straits which are used
for international navigation between one part of the high seas and another part of
the high seas’ the coastal state may temporarily suspend innocent passage
through its territorial waters.233
Clearly then, civilian shipping that traverses the territorial waters of Denmark,
Canada and the United States (the Northwest passage) or those of Russia (the
Northeast passage) will have the right of innocent passage.234 Some countries
have disputed the claim maintained by Western states that the right of innocent
passage extends to warships but the legal grounds for disputing it remain
doubtful. However, all countries with Arctic coasts, including Russia, have
conceded the right of innocent passage to warships in their territorial waters.235
Consequently, from a legal viewpoint there seems to be no need to consider
shipping in Arctic waters from any other legal perspective than shipping in other
parts of the world. However, Russia has claimed that the routes that pass through
the island chains of its northern coast are internal waters, a point disputed by the
United States.236
Contrary to the impression sometimes given in the media, many uncertainties
remain as to whether and when sea lanes through Arctic waters will become
profitable. It may still take time before the narrow seas in the Northern Canadian
archipelago and around Severnaya Semlya (Russia) become navigable.
Profitability is also hampered by the lack of cargo ships that are reinforced to
withstand ice, high tariffs and insurance requirements. A simulation has shown
that unless the tariffs are lowered by 26% the North-East passage will not be
competitive in comparison with the Suez Canal.237 Finally, given the extreme
conditions that will probably be around for quite some time and assuming that all
232
Akehurst 1997:176
Akehurst 1997:177
234
It should be noted that Canada has claimed these waters as internal, thereby possibly restricting
the rights of passage, a claim that is not recognised by any other country. Paskal 2007:6
235
In 1984 the USSR recognised that warships have the right to innocent passage and in 1989 it
“amended its regulations to exclude arbitrary discriminatory restriction of the right of warships to
innocent passage”. Akehurst 1997:177. The Russian Federation is the successor state of the
Soviet Union and has declared that it will continue to carry out obligations under international
law concluded by the USSR. Akehurst 1997:166
236
Åtland 2003:37
237
Åtland 2003:38
233
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the technology to master them is not available to any single country, ventures to
exploit or traverse the Arctic may have to take the form of collaborations
between several countries. This is even more evident in the case of exploitation
of resources on the seabed where Norwegian firms and agencies have the
technology and experience for offshore drilling for gas and oil in Arctic waters
whereas Russia has a unique icebreaker fleet.
It has been argued that the reduced sea ice will also have implications for naval
planning in the littoral countries, since new areas of potential operations become
opened.238 Although naval planners will have to rethink their areas of operations,
it is unclear whether the polar climate will change so much that the littoral areas
of the polar countries will be relevant for naval operations. The Arctic climate
will have to change enormously in order for the littoral areas to be populated and
for cities to be built. An important issue from the Russian viewpoint is that the
large Siberian deposits of oil, gas, timber, coal and metals can be transported to
export markets along the northern coast.239 It is probably unrealistic to imagine a
future relationship between Russia and the West where security concerns are not
relevant, particularly considering current trends. However, one factor that could
restrain a securitisation of the Arctic territories is if Russia were to perceive that
its economic interests were likely to be damaged by doing so. One possibility of
securitising Arctic shipping is if future sea routes pass nearby US and/or Russian
bases in the Arctic. Concerning the former, future sea lanes are likely to be
nearby bases for existing or proposed missile defence systems. This issue
concerns not only the Thule airbase on Greenland but also existing bases in
Alaska and proposed ones close to the Aleutian Islands in the Bering Sea.
238
239
This is one of the few military impacts of climate change noted by the IPCC (2001b:831)
Åtland 2003:38
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240
If and when sea lanes open in the Arctic the Bering Sea will become a natural
‘choke point’ of Arctic shipping. Since its two littoral states are the United States
and the Russian Federation, it could be argued that issues surrounding large
quantities of international shipping through the strait could become a permissive
cause for conflict. However, the opposing argument could be proposed that it
would be in the interests of both countries to keep the Bering Strait open and
under mutual control, which would provide an impetus towards establishing a
regime of controlled management. For Russia, Arctic Sea lanes could be seen as
a substantial opportunity for its Far East, not least for shipping contacts with the
European part of the country. From this point of view, it may actually be
beneficial that the two littoral states are strong and materially well-equipped to
patrol the area. Although the issue is both hypothetical and indeterminate, it is
nevertheless important to note that this point of contact between the US and
Russia which could be of greater importance in the future is likely to play into
the relations between the two countries.
4.2.2
Exploitation of the sea bed
Changed temperatures in the Arctic could entail new possibilities to extract
natural resources, such as oil and gas from the Arctic seas and littoral areas. This
development illustrates the contrast between the energy security perspective and
240
Source: http://news.bbc.co.uk/2/hi/europe/6739685.stm access 20070611
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a mitigation/adaptation perspective on climate change. From an energy security
perspective, such a development is viewed as as an opportunity rather than as a
problem. This development is more worrying from the perspective of mitigation
of climate change. Access to previously untapped sources of fossil fuel will
naturally make it more difficult to cut consumption of oil and gas, and thereby
emissions of CO2. From this perspective, the challenge is rather to make sure that
the potential resources of oil are not exploited. The difference between these two
perspectives on the Arctic could very well play into the global politics on climate
change as different countries position themselves, either leaning towards an
energy security perspective or towards a mitigation/adaptation perspective.
An outstanding question is whether the new possibilities of oil and gas extraction
will lead to conflicts over resources.241 This possibility is based on two
assumptions:
1. Natural resources, such as oil, lead to conflict and the more valuable or
scarcer the commodity, the more likely it is to lead to conflict.
2. Due to the hitherto unregulated status of the Arctic, this area is particularly
prone to become an area of conflict. The Arctic has not been specifically
regulated in any international treaty as has Antarctica, but as shown above,
the Law of the Sea is applicable to several areas that may become political
issues under future conditions of climate change. The Law covers not only
what happens on the surface but also the seabed. For legal reasons, the
Convention, previous treaties and customary law divide the seabed into two
areas, the continental shelf and the deep sea.
Legislation concerning the continental shelf originated from the period after 1945
when exploitation of oil reserves under the sea became technologically possible.
As stated by the 1958 Geneva Convention on the Continental Shelf ‘a coastal
state excersises sovereignty over the continental shelf for the purpose of
exploring it and exploiting its natural resources242.’ The continental shelf is
defined as an extension of the national territory of the coastal state extending to a
maximum of 200 nautical miles from the baselines where territorial waters are
measured.243 Russia has made claims to substantial parts of the seabed under the
241
CNA 2007:38
Akehurst 1997:192
243
Akehurst 1997:193 Article 76(1) of the 1982 Convention states that ‘The continental shelf of a
coastal State comprises the sea-bed and subsoil of the submarines areas that extend beyond its
territorial sea throughout the natural prolongation of its land territory to the outer edge of the
continental margin, or to a distance of 200 nautical miles from the baselines from which the
breadth of the territorial sea is measured where the outer edge of the continental margin does not
extend up to that distance.’ Cited in Akehurst 1997:193
242
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Arctic sea, claiming that the Lomosomov ridge, an underwater mountain range,
is part of the Russian continental shelf.244 The validity of these claims cannot be
ascertained in detail here but they will be the object of dispute resolution by the
International Commission on the Continental Shelf. A pertinent question in this
context is whether Russia, and other countries with interests in the Arctic, will
respect international law. An answer can only be tentative but it should be born
in mind that even during the Cold war the USSR respected and worked within
the framework of the Law of the Sea. Disputes can and will occur but as long as
they take place within the international legal framework they do not amount to
security ‘conflicts’. A wholesale break with the legal framework that governs the
Arctic waters by any party is unlikely to occur without a prolonged period of
seriously raised tensions, as it would be seen as a very serious provocation to the
international system.
Like other aspects of climate change, the effects of global warming in the Arctic
depend on the international context of the region. Therefore it is relevant to take
the changing political attitudes to human activity in the Arctic into account. A
study from the Norwegian Defence Research Establishment (FFI) concludes that
since the end of the Cold War, Russia’s policy towards the North has become
more dominated by economic interests while strategic concerns have become less
important.245 This change does not mean that tensions cannot and will not arise
over natural resources in the Arctic in the near or more distant future. However,
this report concurs with Åtland when he states that ‘it is of great importance to
the stability in the northern areas if eventual bilateral and multilateral conflicts
over resources can be handled within a political/economic context or if they
become ‘securitised’.246’
It is the position of this report that conflict is more likely to occur under
scenarios of high use of fossil fuel and diminishing supplies, such as the scenario
A1FI of the IPCC. Under a B1 scenario, when fossil fuel use is phased out in
favour of other energy sources, this issue is not as problematic. However,
conflict remains a function of the international context and of the relations
between the potential antagonists involved. Therefore, it would be advisable to
settle the boundaries of territorial waters in the North as soon as possible in order
to minimise the risk of conflict over resources.247
244
See http://news.bbc.co.uk/2/hi/in_depth/6925853.stm
Åtland 2003
246
Åtland 2003:49
247
A country that wants to make a claim under the Law of the Sea must do so within ten years of
ratifying it, which in Russia’s case is in 2009. For Sweden this could mean having to chisel out an
245
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4.2.3
Thawing Permafrost – an Issue of Strategic Concern
According to the IPCC, one of the most pronounced effects of climate change in
the Arctic is the thawing of permafrost. Permafrost is soil that is perennially
frozen and it is very common in the Arctic, making up 24.5% of the land mass.248
As has been pointed out by numerous studies, thawing permafrost could act as a
powerful independent driver of climate change. The permafrost traps vast
amounts of carbon dioxide and methane, perhaps as much as 500 billion tonnes,
the equivalent of 70% of the carbon currently in the atmosphere. Such a
development would significantly speed up global warming and it might occur
rapidly.249
Thawing permafrost might in the long run make parts of the Arctic more
amenable to resource extraction, forestry or even settlement. In the short run,
however, thawing might cause more problems. Thawing of ice-rich permafrost
may undermine the stability of a wide range of man-made structures, including
roads, buildings and pipelines in the area.250 The problems with buildings are
most pronounced in the Russian Federation, where most buildings in towns such
as Tiksi and Yakutsk may be lost if no protective measures are taken.251 Ensuring
the stability of infrastructure for transport, roads, railroads, air strips, will be
another problem, especially in Russia. The benefits that the Russian Federation
could reap from a changed climate in the Arctic may be endangered or even
undone by the transportation difficulties that could ensue in permafrost areas.
Problems of infrastructure throughout Siberia may be exacerbated by the
projected increases in levels of precipitation. The report issued by Working
Group I of the IPCC in 2007 points to precipitation increases between 20 and
30% during winter months (DJF) and 5-10% during the summer months (JJA).252
It should be noted that these increases are likely to be strongest in Northern
Russia and Siberia east of Lake Baikal and that there is a large degree of
agreement among the 21 models used.
EU position on the issue since the country is the EU presidency holder during the first half of
2009. See further The Economist 2007f:47
248
IPCC 2001b:821
249
Dupont & Pearman 2006:69
250
IPCC 2001b:821
251
IPCC 2001b:828
252
Christiansen et. al. 2007:883
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This development is not without military strategic implications, if transportation,
primarily by rail or road, through Siberia becomes seriously hampered this will
cause problems for Russian military planning. A particular issue of concern is
whether the Trans-Siberian railroad might be threatened by the thawing
permafrost. If transports become seriously hampered then the strategic possibility
of moving troops between the Central Asian, European and Pacific theatres may
be reduced. Although large-scale territorial warfare of the kind seen during the
two world wars is unlikely in the near future, climate change may reduce
Russia’s possibilities of defence using the country’s strategic depth.
Developments in Russia of course depend on the Russian government’s capacity
and willingness to make necessary infrastructural investments. However, these
investments will become more expensive the more global warming is allowed to
progress. In a worst case scenario beyond 2100, adaptation through reinforced
infrastructure could become difficult.
253
253
http://www.unep.org/geo/geo%5Fice/images/full/7_permafrostscenario.png
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4.2.4
Conclusions
Like so many other issues associated with climate change, the question of
whether the changes in the Arctic will lead to conflict or to cooperation is
fundamentally indeterminate. As stated in the introduction, conflicts are the
product human actions and cannot be ‘caused’ in a direct sense by natural
phenomena. However, what is important is however that international regimes
are in place that enable politics between nations in an ‘opened’ Arctic to take on
peaceful and mutually regulated forms rather than the form of international
competition and zero-sum logics of self-interested competition and, possibly,
conflict. The above survey of the legal issues involved in the case of Arctic
shipping and exploitation of the sea bed show that these issues can be regulated
according to the Law of the Sea. From the viewpoint of international law, there
are no reasons intrinsic to the Arctic why the issues at stake in the Arctic cannot
be subject to peaceful resolution.254
This report argues throughout that the effects of climate change on international
security are to a large extent a function of the overall international context. This
proposition also applies to the Arctic but it stands clear that the changes that
these regions will experience, particularly under conditions of strong climate
change and in a long time-perspective, may fundamentally alter the geographical
context of politics. Although geography is not deterministic, political relations
can display a certain path-dependency over time. Since the natural changes to the
Arctic might open up a new chapter in the relations between the littoral states the
first phases of these changed relations could prove to be formative in the long
run. Consequently, the actions taken by Canada, Denmark, Norway, Russia and
the United States over the next few years could be very important indeed.
4.3 Climate Change, Refugees and Migrants
4.3.1
Introduction
Numerous reports and newspaper articles have contended that climate change
will lead to a massive increase in the number of refugees around the world. This
coverage has even given rise to a new term ‘climate refugees’. This is a
254
To claim as Paskal (2007:9) does, that ‘…there will be severe challenges to the global [sic] legal
system’ due to climate change is erroneous. Although Paskal rightly points out that a sea-level
rise may give rise to a number of international legal issues, such as the determination of maritime
boundaries, as long as these cases take place within the legal framework, the framework itself is
hardly challenged. To claim otherwise is tantamount to claiming that civil law suits challenge a
national legal system, while the opposite in fact is true.
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suggestive and eerie concept that has entered the political vocabulary but has so
far failed to make a mark in the legal discourse. Several aspects of the debate on
climate change and refugees are in need of clarification. This section considers
two main issues:
1. Will climate change lead to waves of refugees?
2. What will be the social and political effects of movements of people due to
or under conditions of climate change? The inquiry is pursued with the same
angle and interest as in the rest of the report, to ascertain how the conditions
of international politics in general and security politics in particular are
affected.
This section is proceeds in a way that allows us to investigate these very broad
questions step by step.
1. We discuss the differences between refugees and migrants as well as general
trends concerning migrations.
2. We consider previous research on environmental degradation and migration
in order to identify similarities with the issue of our main concern.
3. We outline some plausible connections between climate change-induced
migrations and violent conflict. Fourthly, we look at more indirect security
consequences of migrations, namely destabilisation of states and societies.
4.3.2
Conceptual Issues
The first issue in need of clarification is what a refugee is. From the viewpoint of
international law, a refugee is a person who
owing to well-founded fear of being persecuted for reasons of race,
religion, nationality, membership of a particular social group or political
opinion, is outside the country of his nationality and is unable, or owing to
such fear, is unwilling to avail himself of the protection of that country; or
who, not having a nationality and being outside the country of his former
habitual residence as a result of such events, is unable or, owing to such
fear, is unwilling to return to it. 255
A crucial aspect of this definition is that the person has had to cross an
international border. Due to this fact the concept does not encompass all kinds of
people who have been involuntarily displaced. Another category is ‘Internally
Displaced Person’, or IDP. The accepted understanding of an IDP is a person
255
Convention Relating to the Status of Refugees (28 July 1951) Article 1
http://www.unhchr.ch/html/menu3/b/o_c_ref.htm access 20071003
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who has fled his or her own home but has not crossed ‘an internationally
recognized state border’.256 The important concern from the purpose of this
report are the relative proportions of these two groups. Are refugees more
numerous than IDPs and in the case of refugees, where do refugees normally go?
The great majority of people who are forced to flee, regardless of reason, stay in
their countries of origin or to go adjacent countries whereas only a minority
relocate further away.257 According to the Norwegian Refugee Council, IDPs
outnumber refuges by 2 to 1.258 Hence, there are reasons to believe that migration
in connection with the effects of climate change will probably be contained
within national boundaries.259
A distinction needs to be made between refugees and IDPs on the one hand,
whose movements are either temporary or permanent refugees and migrants on
the other hand who relocate permanently but not under conditions of acute
distress. To put these figures into proportion, the number of refugees worldwide
can be compared with the number of migrants. According to the United Nations,
in 2000 174.9 million people were classified as migrants, of which 110.3 lived in
the developed world and 64.3 in the developing world.260 In 2005, the number
asylum seekers, refugees and internally displaced persons according to UNHCR
statistics, was 15,50200.261 In other words, although refugees and asylum seekers
often catch the attention of the media, the public and the politicians, they are only
a minority of much larger population flows, which are ‘of a mixed, composite
character’.262
256
The full definition reads in the Guiding Principles on Internal Displacement reads: “Persons or
groups of persons who have been forced or obliged to flee or to leave their homes or places of
habitual residence, in particular as a result of or in order to avoid the effects of armed conflict,
situations of generalized violence, violations of human rights or natural or human-made disasters,
and who have not crossed an internationally recognized State border”. UNHCR 1998 Cited in
Mooney 2005 See also Woehlcke 1992:287-88
257
This is supported by statistics on major refugee arrivals (2004) as well as the correspondence
between countries of origin and main countries of asylum (2005) in UNHCR 2007:15 & 16
respectively. For example, out of the 146,540 people fleeing Sudan, 130,000 arrived in Chad,
14,000 in Uganda and only 240 in “other” countries UNHCR 2007:15 In the case of refugees
from Afghanistan, 960,000 lived in camps in Pakistan and 953,000 in the Islamic Republic of
Iran, whereas only 23,000 had been granted asylum in the United Kingdom. An additional 1.9
million Afghans living in urban areas in Pakistan ‘some of whom may be refugees’ must be
added to the figure of those living in camps. UNHCR 2007:16
258
Internal Displacement Monitoring Centre 2007
259
WBGU 2007b:127, 137
260
UNHCR 2007:12 It should be noted that these statistics do not give the entire picture as they
exclude IDPs that are not assisted by UNHCR as well as the “incalculable numbers of ‘selfsettled’ refugees world wide”. UNHCR 2007:22-24
261
UNHCR 2007:10
262
UNHCR 2007:24
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A final note concerns the question of who migrates. It is well-known in refugee
research that different kinds of people have different migratory potential. Factors
such as age, education, the degree of traumatisation after a natural disaster, the
individual’s own perception of his or her potential to change his or her
circumstances and an experience of migration as a strategy, either personal or
within the family are very important.263 This is not a question that can be
elaborated at length in this report, but migration may have considerable effects
on demographic structures in both sender and receiving countries. If young, ablebodies and/or well-educated males rather than entire families migrate then
demographic imbalances could result, which in turn could have negative
consequences for development.
4.3.3
Do Environmental Degradation and Climate Change Cause
Migrations?
There is a nascent debate concerning the connection between climate change and
international large-scale migratory movements of internally displaced persons
(IDPs) and refugees.264 Previous research is divided on a number of accounts:
1. Are there any ‘real’ climate refugees or is the concept a misnomer?
2. Do changes in global or regional climates lead to large movements of
refugees or not?
3. If movements of migrants and refugees will occur, will they be directed
towards the developed countries of the North or not?
Several previous estimates that have been made argue that a result of climate
change, including sea level rises, there may be very large numbers of refugees.
Norman Myers, the most well-known proponent of this thesis, puts the number of
people at risk due to sea level rise and “other climate dislocations” at 212
million.265 Richard Black has criticised the notion of environmental refugees as
well as the high figures provided by Myers.266 Interesting details include findings
that migration may actually decrease rather than increase during droughts.267 The
reason is that migration requires monetary resources for travel and ‘an economic
downturn reduces the ability of families to make such an investment’.268 Black
also criticises Myers’ argument that up to 200 million people may be forced to
263
WBGU 2007b:127
For an overview see Castles 2002
265
See Myers 2001 See also Myers 1993 and Woehlcke 1992
266
See Black 1998 & 2001 For an analysis contrasting Myers and Black, see Castles 2002:1-2
267
Black 2001:7, citing Findley 1994
268
Black 2001:7
264
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flee or migrate due to rising sea levels. The figures were originally calculations
of populations at risk due to floods and sea level rise but, as Black points out,
there is a large step from being at risk to choosing migration as a strategy. Such
figures should be treated with caution and are probably best viewed as possible
effects unless other adaptive measures are undertaken rather than as deterministic
predictions.
It is beyond the scope of this report to make a thorough analysis or evaluation of
these calculations or their probability but it is important to stress that previous
research on movements of refugees and migrations suggests that migratory
movements are geographically restricted. Future refugees and migrants will thus
probably end up in camps in their country of origin or in neighbouring countries.
This probably applies to permanent migration due to changed climates as well as
to temporary movements of people due to natural hazards, e.g. storms or floods.
The act of fleeing from natural disasters is sometimes difficult to distinguish
from the decision to migrate in order to adapt to new circumstances.269 We can
analytically distinguish between the two phenomena by defining the first as rapid
flight from sudden events, e.g. extreme weather events, and the other as a more
planned long-term solution to a gradual decline.
Recently, there have been many debates on illegal immigration to Europe, a
phenomenon largely unconnected to climate change. The massive influx of
immigrants from Africa and Asia feared by many observers has not materialised
and the numbers of immigrants that arrive detected or undetected in Europe is a
small minority of the world’s migrants. However, as we have seen over the last
couple of years, even small numbers can produce a large political impact.270 We
can thereby conclude that quantitative changes in a certain variable due to
climate change are not proportionate to the qualitative political consequences.
We should, however, bear in mind the importance of the state in regulating
refugee flows, particularly in the North where states have the capacity to turn
away or resettle refugees.271 Of course, this does not mean that the problem goes
away but only that refugees shift category and instead become IDPs. Thereby
economic, political and social effects – such as impoverishment, destabilisation
and possibly collective mobilization with political intentions – take place in their
country of origin.
269
UNHCR 2007:28
WBGU 2007b:125, 127
271
See UNHCR 2007:16-17
270
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4.3.4
Do Migrants and Refugees Cause or Contribute to
Conflict?
As stated in the introduction, a general stand-point of this report is that conflicts
do not occur ‘automatically’ but they are the product of human action although
constrained as well as enabled by socially constructed structures. Thomas
Homer-Dixon has argued that there is ‘substantial evidence to support the
hypothesis that environmental scarcity causes large population movement[s],
which in turn causes group identity conflicts’.272 The literature on environmental
conflicts, with or without migration as an important component has been
criticised as being theoretically rather than empirically driven.273 Astri Suhrke
argues that there is little empirical support for neither the notion that people are
forced to move because of environmental factors or the argument that refugees
lead to conflicts.274 However, there have been cases where these factors have
been present at the same time and we cannot exclude the possibility that there
will not be future cases where they will do so. In order to understand the
mechanisms of their connections, we need to take a number of intervening
variables into account.
Certain accounts stress that the state has played a key role in all cases where
migrations have led to violent conflict. The actions of both the ‘sending’ and the
‘receiving’ state are very important in this respect. In several of the cases that are
most often cited as instances of the connection between environmental
degradation, migration and conflict the state has been an active player in
fostering these connections. A common denominator in cases of violence in
connection with migrations, e.g. in the Chittagong Hill Tracts (Bangladesh) in
the 1980s, the Senegal River Valley (Mali & Mauritania) in 1989-90 and in
Assam (India) in the 1980s, is that the state empowered the migrants against
other social groups, thus fuelling conflict instead of fostering accommodation.275
In many cases, migrants were used to play into the ethnic or economic policies of
the state regimes. Thereby, migrants are made into proxies to serve the purposes
of the state or the ensuing conflict reflects the fractured and corrupt nature of the
state apparatus. A conclusion, hence, is that although the proximate cause of the
conflict was the migrations, the permissive cause – without which conflict would
not have occurred – can be sought in the intentions or incapacity of the state.
Therefore we can conclude that given the problematic nature of many states,
particularly those with weak accountability and human rights record, conflict
272
Homer-Dixon 1994:20-23
Barnett 2003:10
274
Suhrke 1997:257
275
Suhrke 1997:264-269
273
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may arise in connection with migrations in the future. However, neither
analytical primacy in explaining conflict nor political responsibility in dealing
with it lies with migrants, much less with the climate. The figure below
summarises the different steps of the argument and illustrates the intertwining of
natural and social systems as well as the key role played by the state at different
junctures.
Having surveyed the historical record of environmental factors and migration and
of migration and conflict, we will now outline some possible future
developments. Above, we pointed out that migrants can be used by politicians as
scapegoats in order to bolster their own power. Conversely, migrants could be
used as a power-resource in struggles in the receiving country. These two
developments, particularly the latter one, are probably more likely in the case of
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migrants than in the case of refugees. Refugees tend to be substantially weakened
and deprived of resources as well as marginalised in their country of origin.
Therefore since they lack capacities and as a power-base, they are neither
attractive allies nor well-organised threats to the receiving country, but rather
victims.276 The status of refugees as victims rather than as threats is highlighted
by the fact that both refugees in rural camps and ‘self-settled’ refugees and IDPs
living in urban areas are highly vulnerable to the effects of climate change.277
They are primarily vulnerable to extreme weather events, such as flooding or
storms, but they are also more exposed to the hardships of a worsened climate
due to their marginalised status.
In this respect, groups of migrants or refugees would follow the pattern indicated
by our arguments about interaction capacity. Organisations from the state down
to the family group that have been severely affected by the effects of climate
change are likely to experience a loss in interaction capacity and in the ability to
mobilise for collective action. Hence, well-organised violence by strong groups
pursuing political, economical or ideological aims seems less likely than decline,
destabilisation and a reverse in development. Before exploring the pathways to
and consequences of this development, we will look at exceptional cases, where
climate change might reinforce existing political conflicts that involve migrants.
We face a different situation if the migrations are preceded by violent conflicts in
the country of origin, i.e. the ‘sender’ country. In that case, migrants may
mobilise and continue the conflict from the country to which they have fled,
either politically or militarily. If they do so, relations between the sending and
receiving country may be affected for the worse. If an insurgency in the sending
country is conducted from bases in the receiving country is conducted, the
government of the former might use violence to (re)establish its monopoly of
violence, in effect having to fight a counter-insurgency in its own land. Failing to
do so might lead to cross-border fighting, increased tensions (e.g. between Syria
and Turkey over PKK bases) or, in the worst case, a full-blown invasion by the
sending country. All these developments are possible in various parts of the
world and certainly problematic from the viewpoint of security and stability.
However, they are not of particular relevance to climate change-induced
migrations, although we could however postulate several developments where
the natural effects of climate change (droughts, floods etc.) reinforce existing
patterns of conflict.
276
277
Suhrke 1997:263; Lee 1997:289
UNHCR 2007:28
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For instance, existing civil strife or insurgencies, which could be exacerbated by
climate-change induced pressures could work in tandem with the necessity to
migrate due to climate change effects. Another plausible development is that a
country weakened by climate change could find itself receiving refugees from
political conflicts, who arrive with the kind of grievances described above. In this
case, the receiving country might find itself unable to control its territory by
enforcing order and/or to accommodate the newcomers in a fashion that
stabilises the situation.
Having considered these hypothetical cases where climate change may reinforce
pre-existing conflicts involving cross-border migrations we now consider the
issue of overburdening or destabilisation due to climate change-induced
migrations. Recalling the arguments concerning causation in Section 1, we stress
that destabilisation of societies due to refugee flows may be permissive, not
proximate, causes of conflict.
4.3.5
Migration, Slums, Destabilisation and Conflict
In large parts of the world large movements of migrants are already taking place,
primarily in the form of internal urbanisation. 278 In connection with the above
arguments on migrations, including rapid forms, it seems reasonable to assume
that migrations induced by climate change will take this form. Cities that are
relatively close to affected areas are likely to constitute destinations for migrants
seeking to evade worsened climatic conditions, floods or sea level rise. From the
perspective of how such developments affect the stability of societies and states
it must be emphasised that urbanisation in large parts of the South assume the
form of spreading of slums.279 This phenomenon decreases the possibilities of a
sustainable economic development in the countries concerned and may have
destabilising effects.
In some cases slow decline may be a more probable outcome than the rapid
collapses and conflicts that sometimes capture the popular imagination.
However, economic and societal decline and increase of ‘slumification’ can
constitute a breeding-ground for conflict, terrorism, low-intensity urban conflicts
and organised and spontaneous crime but also for insurgencies within countries
and regions. Destabilisation can occur in certain areas but in order to grasp this
phenomenon in full poverty and institutional weakness must be included in the
278
Davis 2006 Se also The Economist 2007a:5-8 The IPCC points out that urban areas in the South
are particularly vulnerable to the effects of climate change IPCC 2007b:7
279
See The Economist 2007a:6
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analysis rather than seeing climate change as a triggering cause of conflicts that
are interpreted one-dimensionally as ‘ethnic’ or ‘religious’.
Furthermore, planned migration, of the kind already taking place on Tuvalu,
could become an important strategy of adaptation in larger countries. Such a
course of action would entail a strategy of withdrawal of population from an area
that could be afflicted by temporary or permanent floods or droughts. Such
solutions should be considered closely and subject to careful strategic planning in
order to reduce costs, suffering and risk of instability in the future. Such
measures demand political will and financial resources, but also considerable
institutional and bureaucratic capacity to finance and organise the efforts. This
could become a major foreign aid task in the future.
The debate on environmental and climate refugees is highly polarised and some
of the polarisation may be traced to the preconceptions and paradigms of the
participants. The two camps in the current debate are, on one side, authors who
stress that environmental refugees pose a substantial problem and warn of
coming mass migrations due to climate change. On the other side are find authors
who criticise the statistics, and the lack of ability to demonstrate causal links in
the first camp and who also stress that migration is often a purposeful strategy of
peoples living in areas affected by seasonal climactic variations. In many ways,
this debate is similar to that waged by politicians, scholars and lobbyists over the
nature of slums.280 There are those who stress the poverty, degradation and
hardships experienced by slum-dwellers. These authors also tend to warn of the
risks of social and political repercussions of the widespread slum sprawls and
tend to project dire consequences in the future if nothing is done. On the other
side there are those who challenge the arguments on the pathologies of third
world mega-cities. Suhrke argues that the reasons given by Samuel Huntington in
the 1960s as to why there is such a low level of collective urban violence in large
urban conglomerations are still relevant.
Urban centres represent upward mobility for the migrants (which is why they
continue to come), and the migrants tend to be cautious and conservative, focusing
more on immediate ways to improve their livelihood than on broader political
struggles.281
The conclusion that urban slums in the South have witnessed very little largescale collective violence should not be understood as a downplaying of the many
problems that slums entail. Rather, it only shows that organised violence, which
is the focus of traditional security, is rare. Shifting the perspective one must
280
281
See Davis 2006
Suhrke 1997:258 See also Huntington 1968
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argue that many aspects of slums are highly detrimental, to say the least, to
human health, security and development. Much in line with the conclusions that
we were able to draw in the section on climate change in Africa, rapid migration
to mega-cities in the South is or can be a hindrance to development rather than a
direct security threat. It is beyond the scope and purpose of this report to enter
into the debate on the connection between development and security issues or
even into the debate on whether development should be linked to security issues.
In the debate on forced migration and slums, the two positions can be understood
by drawing out the essence of their respective perspectives and assumptions. In
the less alarmist camps of the respective debates, authors share an optimistic
view of politics, technology and economics and they emphasise the
resourcefulness and the agency of the people who are the objects of the debates.
Although this stance avoids victimisation, there are a number of assumptions that
underpin its arguments which may be untenable. Concerning the argument of
adaptive strategies, optimism may be unwarranted since all human beings adapt
in one way another and adaptation itself is no guarantee that the course of action
is not socially destabilising, that it leads to a dignified existence or indeed not to
conflict. However, we concur that it is highly important to take account of local
practices, such as seasonal migration, into account and not to project ‘Western’
social practices and norms onto other contexts and thereby misconstrue the
subject matter.
Consequently, two caveats are in order in relation to the developmentdestabilisation nexus. First, climatic and thereby environmental conditions have
been relatively stable in most parts of the world for the past centuries and the
changes in natural systems and concomitant social practices we are seeing today
may be only the first inklings of what can be expected in the more extreme
scenarios developed by the IPCC. Many natural systems are today viable and can
sustain a large number of people, but they are under considerable stress. The
empirically provable fact that environmental problems may not be acute today
tells us little about the future and should not be grounds for policies aiming at
handling tomorrow’s problems.282 What this amounts to is that, in the words of
282
An analogy could be drawn to the optimism in the inter-war years of the previous century where
the fact that Germany was no threat at the time (e.g. in the 1920s) led politicians to infer that the
current situation would hold for the future. Certainly, some cut-backs in military spending from
the levels during or even immediately previous to the war would have been necessary and
sensible. A certain downscaling of military posturing and ‘desecuritisation’ (Buzan, Wæver & de
Wilde 1997) of international relations was also prudent then since it reduced the risk of war by
signalling peaceful intentions. The same logical is applicable to the contemporary question of
whether to ‘securitise’ climate change and environmental degradation. The probability of conflict
can be increased if some actors signal a readiness for it. Nevertheless, the improbability or even
impossibility of future conflict or tensions cannot be deduced from a present state of peace or
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the German historian Reinhardt Koselleck, history may have ceased to be a guide
to the future in this respect, which has happened on previous occasions of
substantial historical discontinuities.283
Second, a great diversity of natural forms can be found within the same system
but a precondition of highly specialised species is that they can interact with
other, different species within the same system. A similar relationship holds for
social ecologies in which nomadic communities may exist or even thrive.
However, a precondition of their highly specialised niche – often living in harsh
regions – is that they can interact with other kinds of communities, namely
settled ones, in the same system. Just like in natural systems, subsistence is a
matter of relations. If conditions change in such a way that settled communities
no longer need the goods or services of the nomads, or if migratory patterns
change or settled communities come under stress so that they cannot absorb the
influx of nomads, then the nomadic communities may no longer be viable.
Therefore, although scholars in the ‘less-alarmist’ camp may be right in
criticising some of the empirical evidence of environmental refugees their
critique should not, given the potential risks involved with climate change, lead
us to infer optimistic visions of the future. Our point is rather that in this case we
should be aware that past evidence may not be a useful guide to the future. Given
the risks of climate change and given that we can now begin to understand the
limits of our knowledge, we strongly argue in favour of thinking and acting on
the basis of precaution and pragmatism.
4.3.6
Conclusions
Finally, the following three conclusions can be drawn from this section:
1. The state plays a central role in whether conflict will result in connection
with migrations. As befitting a very complex organism, the relationship of
the state apparatus to phenomena that originate on sub-state levels is
sustainability. Rather, both extremes should be avoided and replaced by a simultaneous
awareness of the risks of a future worsening of political relations, in individual regions as well as
globally, and of the fact that conflicts can be avoided and their causes mitigated, not least because
their character depends on human volition and interaction and is not automatic.
283
See Koselleck 2004
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multifaceted. The state needs to be interested in and able to address social
grievances and needs politically before local leaders resort to violence or
tensions erupt in less-coordinated but nevertheless violent actions, e.g.
protestors turn into mobs. If violence does occur, either as a result of
conditions in the receiving country or as a result of previous processes in the
sending country, the state needs to have the will and capacity to assert
control over the territory. It needs to be pointed out that, as in all cases where
the state apparatus meet non-state actors with violence, a careful
combination of steadfastness and restraint is necessary so as to quell rather
than escalate the conflict. Finally, if the state apparatus or parts of it, e.g. the
security services, decide to exploit for their own ends an influx of migrants,
regardless of whether these have crossed an international border or not, e.g.
by supporting one group against another, then the likelihood of violence
increases.
2. ‘Degradation’, whether environmental or social, does not lead
deterministically to violence and conflict but can be handled through
adaptation/accommodation. Increasing economic and social problems can be
handled by means of developmental and/or economic policies in the first
instance. The issues of migrations and social degradation relate back to the
problem of whether the many problems we are addressing should be
conceived of as questions for security policies or whether other policy fields
are more suitable in addressing them. At root, the problem can be addressed
in terms of the overarching effects that one wants to achieve. If containment
is the overarching aim, then military instruments might be sufficient.
However, if the long-term ‘strategic’ aims are international stability and
development then issues of environmental and social development should be
addressed by policies seeking to amend the root cause of the problems. In
that respect, military instruments can be a means to an end if employed
carefully and not in isolation but in combination with other means.
4.4 International Interventions in a World with
a Changed Climate
International interventions along the spectrum from peace-keeping to peaceenforcement may very well become even more important in a world
characterised by climate change than it is today. Two arguments support this
assumption:
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1. International intervention is becoming an important modus operandi of
international politics –although not the only one– which may have the
character of determining policy.
2. As this report and others have argued, although inter-state wars due to
climate change are unlikely, destabilisation of countries or indeed entire
regions due to climate change is not.284 Therefore, international operations
conducted either with the intention of stabilising regions or to ameliorate
conditions in regions already ‘failing’ are likely to become important in the
future. Such operations are not purely military matters but the challenges at
hand call for an intensive collaboration between civilian and military
instruments since the missions include various foreign aid tasks, institutionbuilding and the provision of physical security. In other words, it could be
argued that many states and international bodies (e.g. NATO and the EU),
particularly in the North, are already preparing for tasks that they may have
to undertake in a world characterised by climate change.285 This report
argues that strengthening of this development and of reinforcement of
structures that enhance cooperation and co-ordination between civilian and
military instruments is a sound strategy for the future.286 However, the
complexities as well as magnitudes of climate change mean that a number of
factors hitherto unacknowledged in political and academic debates must be
taken into account.
Much of the debate around ‘state failure’ and international efforts to prevent or to
rectify such situations has focused on states and societies that already are weak
or weakened. This is a particularly prevalent mode of thought in debates on
‘early warning systems’ monitoring state failure.287 Without denying the
284
WBGU 2007b:2
The task of addressing state failure is prominent in the security strategy of the EU. See EU
2003:4 & 6. The task is less-prevalent in NATO’s strategic concept from 1999 but is nevertheless
counted among the ‘security challenges and risks’ the Alliance has to take into account. See
NATO 1999 §20. The importance of countering instability due to ‘failed or failing states’ was reaffirmed in at the Riga summit in November 2006. See NATO 2006 §2 (The Strategic Context)
and §16.i (Guidelines for Alliance Capability Requirements): In §16.i the Alliance stared that it
puts a premium on ‘the ability to bring military support to stabilisation operations and
reconstruction efforts across all phases of a crisis, including to establish a safe and secure
environment, within the full range of missions; military support to reconstruction efforts will be
provided to the extent to which conditions in the theatre of operations prevent other actors with
primary responsibilities in this field from carrying out their tasks. This should embrace the ability
to support security sector reform, including demobilisation, disarmament and reintegration, and to
bring military support, within available means and capabilities, to humanitarian relief operations’
286
Such collaboration is also envisioned in EU 2003:7 & 12
287
For this argument in the context of climate change see for instance Purvis and Busby 2004:71 &
72
285
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importance of closely watching states that now display signs of weakness or
instability, this report argues for a preventive strategy that pays particular
attention to relatively strong states in the respective regions.288 This order of
priority is advocated for three separate but interrelated reasons.
1. The difficulties of intervening in large, populous and/or well-equipped
countries.
2. The positive role that a strong regional power can play for its region under
conditions of climate stress.
3. The destabilisation or even collapse of a large, populous and/or wellequipped country may have negative effects on other countries in the region.
Although notions of an automatic ‘spill-over’ are somewhat suspect, many
other problems may ensue.289 These could be refugee flows or even the
temptation of neighbours to step in to exploit the situation, such as several
states did when the Mobuto regime fell in Zaire in 1998.290 Naturally, the
general international political context in which international interventions
will take place must be taken into account. Since this involves much wider
issues, it is discussed below in section 5 under the heading ‘the context of
climate change’.
4.4.1
The Difficulties of Intervention
When discussing international interventions to support countries threatened by
destabilisation or internal conflicts it must be stressed that most interventions
have taken place either in small countries with few resources (e.g. Sierra Leone,
Liberia) or on a small scale in larger countries (e.g. the EU operation Athena in
Congo). This report emphasises that some of the countries threatened by serious
destabilisation due to climate change are large, populous and contain substantial
resources. International intervention in such countries would pose challenges of
an entirely different nature and magnitude. The factors of geographical and
demographical scale are obviously problematic but so too are the resources
present in a larger and richer country that has become destabilised by climate
change – particularly military resources that were once under the control of
central authorities such as the army and police forces but under a scenario of
destabilisation may have slipped into the control of various other actors.
288
This idea builds partly upon Esty 1999: 298-299 See also Stedman’s (1996:237) advocacy of
focusing foreign aid resources in countries that stand a chance of sustainable development; a view
well-in tune with the argument of this report.
289
Brown 1996:583
290
Howe 1996
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Such factors make international interventions into large, populous and once
resource-rich countries far more daunting than into smaller countries. They may
in fact over-stretch the resources and capabilities of intervening states, which
would most probably be from the North (e.g. NATO and EU).291 Interventions
into major countries may turn out more like the current operations of manifold
difficulties and dubious prospects of success such as that in Iraq rather than the
relative success stories of Liberia, Sierra Leone and to a certain extent,
Kosovo/Kosova. Since international interventions with the purpose of rectifying
a situation in which a large state has become destabilised or even fallen into
disarray may not be realistic, preventive strategies become even more important.
4.4.2
The Stabilising Potential of Regional Powers
Because of their relative strength, it can reasonably be assumed that the
importance of regional powers and other major states to the region is so much
greater. Countries that are important to entire regions – either economic regions
or regional security complexes – may have the ability to substantially strengthen
or weaken the region, depending on internal developments. For this reason
supporting of state and societal stability, a task that requires development of
institutions and administrative functions, by regional powers can be a forceful
preventive measure. To enhance social cohesion, which is obviously a core asset
under conditions of stress as may follow on climate change, it is also necessary
that not only the state apparatus is strengthened but also the institutions of civil
society.
Regional powers have the possibility of intervening in crisis situations because of
their greater proximity to areas severely affected by climate change and the
additional social consequences that this may bring. Bolstering the capabilities of
individual regional powers with the intention that they should play a leading role
in crisis management could entail problems such as affecting regional security
dynamics for the worse. Therefore regional multilateral security organisations
ought to be strengthened.292
Because of the relative affluence of their societies and strength of their
economies it can also be assumed that major states could be attractive
destinations for large-scale migrations which may have destabilising
291
292
WBGU 2007a:6
For a discussion on how the European Union could contribute to regional stability in West Africa
by supporting ECOWAS (Economic Community of West African States), although not in a
climate change related context see Nivet 2006 For a similar analysis concerning the role of the
EU and its member states in strengthening multilateral security arrangements in sub-Saharan
Africa see Faria 2004:11-30 However, for critique of ECOWAS see Stedman 1996:250-53
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consequences if such migrations are not managed in a planned and orderly way.
Therefore, the capacities of receiving and integrating migrants and/or refugees
must be strengthened as a preventive measure as well as a part of future crisis
operations.
4.4.3
Negative Consequences of Destabilisation of Regional
Powers
Although regional powers in the South may be powerful, rich and stable by
regional standards, it must not be forgotten that their institutions are frail, their
societies fractured and that governance faces substantial challenges now and in
the future. Therefore, they may well become destabilised although in perhaps
more surreptitious and subtle ways than their weaker neighbours. Many of the
states considered by Buzan & Wæver as regional powers, such as Egypt, South
Africa and Nigeria are also susceptible to being affected quite severely, although
in different ways, by climate change.293 Needless to say, their capacities to adapt
to climate change ought to be a focal point of institutional foreign aid operations.
Cross-border consequences of the destabilisation of a regional power may
include economic collapse in neighbouring countries, the proliferation of arms
and armed groups and the lack of leadership and stabilising influence in a region
afflicted by climate change and other related calamities.294 The regional role and
the difficulties associated with international intervention in larger countries also
make preventive efforts such as technical and institutional aid to enhance their
adaptation capacity much more important. In fact, this report recommends that
efforts be focused on countries the destabilisation of which would be much
harder to rectify and would likely to have consequences beyond its borders.
In sum, several major countries may be considered ‘pivotal’ in the sense that
what happens to them will affect the entire region, for better or for worse. In this
regard, however, this report wants to stress two things. One, ‘pivotal’ status does
not only hinge on material factors or on quantifiable and measurable capabilities.
Rather, the relative importance of a country is due to political factors. Two, the
role of a ‘pivot’ is not necessarily played only by today’s regional powers,
although they are clearly important. Instead, much more careful analysis must be
undertaken; a task this report has to pass on to further research. The following is
293
For example, Nigeria’s petrochemical industry is threatened by sea level rise as it is located near
the coast and in low-lying deltas. Chatham House 2005:28
294
The economic importance of strong states as motors of regional development should not be
forgotten in this context. Stedman’s (1996:264) dire warning is also worth quoting in this respect:
‘Peace enforcement and humanitarian intervention, by drawing resources from African countries
that have the potential to be self-sustaining, risk condemning all of Africa to collapse’.
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not a definite check-list but a suggestion of factors that would imply a ‘pivotal’
role for a country:
1. The likelihood of a country to become severely destabilised by climate
change as well as by other challenges such as population growth,
institutional frailty and societal fissures.
2. The country neighbours or is close to areas affected by climate change.
3. The consequences of destabilisation would be felt across the entire region of
which the country is a part.
4. The country is susceptible to material and institutional aid and is, in turn,
able to assist in sustaining its region through foreign aid, political leadership
and material resources.
5. Not only must particular attention be paid to large and populous countries
but also to countries with substantial and or combat-hardened armed forces
or militias and large stocks of weapons. They may be as difficult to intervene
in as large countries and the regional effects of their collapse could be as
serious in terms of effects on neighbouring countries.
4.5 The World Economy and Resource Wars
It is not possible or necessary to deal in full with the impacts of climate change
on the global and regional economic systems in this report. It is not possible due
to the limitations in scope and not necessary since this has been outlined in detail
elsewhere, particularly in the Stern Review. However, it would be erroneous not
to discuss the economic consequences in a report dealing with the impacts of
climate change on international security since the spheres of politics and
economy are so intimately connected. The Stern Review has argued that the
economic costs of not mitigating climate change ‘…could create risks of major
disruption to economic and social activity, on a scale similar to those associated
with the great wars and the economic depression of the first half of the 20th
century’.
Above, one of the important permissive cause of states undertaking resource
conflicts identified is an increased role of the state in managing national
economies. Economically interventionist states or those with significant linkages
between business/industrial elites and security policy elites are far more likely to
take military measures to ensure access to raw materials or markets. On the
contrary in countries (or under a global paradigm) where market actors are left
more to fend for themselves and where the connections between state-economywelfare are becoming more detached, there is less risk of a securitisation of the
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economy with military implications. To argue that the post-Cold War state
ascribes increased importance to economic matters and therefore may undertake
military actions to safeguard resources for industrial production ignores a number
of changes undergone, and widely acknowledged, in the relationship between the
state and economic actors in the developed world after the early 1990s.295
History gives ample examples of contexts in which the state apparatus has used
the military instrument in order to support trade (mercantilism) or industry
(industrial colonialism). It should be noted that interventionism in this context
does not have to imply that the state ensures welfare provisions of the continental
(corporatist) or northern (social democratic) European kind. Rather,
interventionism is a diverse set of practices and beliefs that the state apparatus
has a responsibility to act domestically and internationally in order to assist
economic actors within its territory. As the histories of the British Empire and the
American twentieth century demonstrate, such practices are not antithetical to
liberal regimes.
Although the First World War is sometimes explained as a break with the liberal
free trade regime of the nineteenth century it should not be forgotten that the
rising international tensions between the European powers in the latter half of the
nineteenth century coincided with an economic downturn (1870s) that led to
protectionism and an increased international role of the state in promoting the
economic/industrial interests of the country. In terms of international military
actions in order to exploit and hold resources in the form of raw materials, it was
during the later nineteenth century that the European powers decided not only to
divide the African continent among themselves but actually to inaugurate stateled exploitation of its interior. Previously, colonial enterprises had been largely a
matter of private enterprise.
What this amounts to is that state-led scrambles for and conflicts over natural
resources have been historically linked to international interventionism by the
state in economic matters. In more recent history, such interventionism has been
connected to downturns in the international economy.
It is clear that natural resources are scarce and precious and possibly increasingly
so as we progress into the twenty-first century. However, the connection between
their desirability and armed conflict, particularly by states, to acquire them is less
than clear.296 If armed conflict was the only means of securing possession, or in
295
296
For this argument see Klare 2001:213
Smil’s (1996:6) sober assessment on this point is worth quoting in extenso: ‘…there have been
no instances of running out of a major mineral resource on a large scale. Instead, long before
reaching the point of depletion, the rising cost of harnessing a diminishing resource pushes us to
do one of three things, singly or in combination. First is to lower demand by devising better
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any case supplies, of precious commodities then it is quite surprising that we
have seen so little overt conflict over oil and so few military operations to secure
possession over oil-rich territories during the twentieth century. Arguments about
a future marked by armed competition over oil, minerals or timber – supported
by evidence of the role of raw materials in current conflicts, which are taken to
be signs of things to come – imply notions of ‘tipping points’ in relation to
supply and demand. Beyond these tipping points which are predicted to occur in
the future, the supply-demand ratio will be so extreme that market mechanisms
will no longer suffice and conflict and territorial possession will be inevitable.
This is not to deny the importance of raw materials or the problems arising from
depletion of natural resources by a growing population with rising living
standards. On the contrary, these issues are eminently important and worrisome.
Rather, it is the idea that the attractiveness and scarcity of certain resources is
more or less automatically linked to conflict that is problematic. It is an idea with
a strong common-sense appeal, similar to the much-vaunted ideas about ‘spillover’ and ‘contagion’ of instability, but the arguments underpinning the idea that
this constitutes an ‘emerging landscape of conflict’.297
As pointed out by Margaret Beckett, the former British Secretary of State for
Foreign and Commonwealth Affairs, when discussing the conflict potential of
resource scarcity the relationship between current demand and future supplies
cannot be taken at face value. Since technology has the potential of making use
product or convertor designs and smarter utilization patterns; the lowered specific consumption
greatly extends the lifetime of known stocks. This trend has been seen with every mineral
resource: after first rising and then reaching a clear plateau, the specific consumption of all metals
and fuels (measured in terms of or energy value per GDP) has declined as countries proceed
through the successive stages of economic development. A second option is to turn to lower
quality deposits that are either easier to obtain or, with improved techniques, cheaper to recover
per unit of final useful product than the originally exploited stocks; this shift has occurred
repeatedly in the mining of metals and fuels. Third is to find effective substitutions. Substitution
of silicon for copper in telecommunications is perhaps the best example: the former element is the
second most abundant constituent of the earth’s crust’. (My underlining)
297
See for instance Klare 2001:23 Klare’s view of history is simultaneous synoptic and myopic,
stating that ‘Human history has been marked by a long succession of resource wars –stretching all
the way back to the earliest agrarian civilizations. After World War II, the relentless pursuit of
resources was overshadowed by the political and ideological exigencies of the US-Soviet rivalry;
but it has resurfaced with fresh intensity in the current era.’ Klare 2001:25
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of resources more efficient, it can create more mileage out of existing supplies.298
Considering that in many countries, efficiency in energy consumption stands in
direct correspondence to the level of development, there is significant room for
political efforts to dampen the acuteness in the demand for energy, for instance
through programmes of technology transfers.
The overall point of this argument is that although large-scale state-led
securitisations of natural resources, possibly with concomitant military action,
are distinctive future possibilities a number of steps involving successive changes
in permissive causes, most importantly the world economy, lie between today’s
world and a hypothetical future of ‘resource wars’. The role that climate change
may have in such a scenario will probably be in its disruptive effects on the
world economy.
4.6 Climate Change and the International
System
For methodological and pedagogical reasons the analysis above isolated climate
change from other important factors in the international politics of the twentyfirst century. Realistically, however, climate change must be seen as having
effects together with other major international issues. In fact, some of its most
important implications actually stem from interactions with other challenges to
global governance. When other global macro-trends are taken into account the
conclusion that climate change may act as a strong ‘conflict multiplier’ or, as this
report has tried to argue, ‘stress multiplier’ on societies and states is supported.
The following section discusses a number of future trends that will intertwine
with that of climate change over the coming fifty years: Scarcity of fossil fuels;
population growth; the risk of climate change weakening international
institutions.
1. The coming fifty years will include other worrying trends such as the
increased scarcity of fossil fuels combined with the prodigious growth of
economies such as China’s and India’s.
2. Expanding populations, particularly in the South have been straining the
resources of states, societies and ecologies for the past fifty years and will
continue to do so, albeit with increased effect, over the coming fifty years.299
298
299
Beckett 2007:57
For example, the population of Kenya has increased tremendously over the past century as well
as the past fifty years. In 1900 it numbered around 1m people, 4 m after 1945, around 8m in 1963
and 35m today. Estimates of future growth project the population at over 40m in 2010 and 57m in
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Even without climate change, these developments constitute substantial
challenges for national and regional political, economic and ecological
stability in many areas. Seen in isolation, they could also lead to the
necessity of international interventions to support failing states or to stabilise
states already in a state of ‘failure’. Together with climate change, which
exacerbates the strain on natural, societal and economic resources, they pose
formidable challenges.
3. The (political) conflicts over the global inequalities between countries that
could come to be seen as driving climate change and those affected by it
could spread to other issue areas of international politics. A damaged
relationship not only between North and South but also between new
economic powers such as India and China and poorer countries could block
institutions of global governance, most importantly the United Nations,
which could lead to a weakened international community in the areas of
mitigation and adaptation to climate change and multilateral management
international peace and security.300
Particularly problematic is the potential of failed diplomatic management of
climate change to block the United Nations in the area of international security.
This report concurs with many others on the same topic that one of the most
salient security effects of climate change is the destabilisation of countries or
even entire regions.301 Such developments would inevitably call for multinational
responses in the form of combined peacekeeping and state-building operations.
However, if multinational institutions have been damaged in their legitimacy or
are blocked by conflicts arising from other aspects of climate change
management, it may prove difficult to either to assemble large multinational
coalitions to undertake such missions or to secure the legitimacy of international
interventions through the United Nations.
It is difficult to envisage that climate change would weaken institutions such as
NATO or the OSCE. The former is the most important and powerful (capability
and institution-wise) organisation that could intervene in states or regions
2025. Nairobi’s population alone has climbed from 0.5m in 1963 to 6m today, most of who are
living in slums. The Economist 2007b:44
300
cf. WBGU 2007a:6
301
WBGU 2007a:5
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threatened by destabilisation or collapse. Regarding its internal politics climate
change would probably not alter its capacity for action. However, in an
international climate characterised by mistrust, tensions and resentment a NATOled intervention may have difficulties securing legitimacy. In the absence of
formal legitimacy conferred by the United Nations or informal legitimacy
conferred by a favourable international opinion, a NATO-intervention could
increase international tension. Indeed, member states may recognise this and
abstain from undertaking an intervention that would be greatly needed from a
material perspective but too costly from a political perspective.
In the absence either of multinational institutional frameworks or international
consensus to undertake interventions individual countries may be tempted or,
given the gravity of imploding countries or regions on their borders, forced, to
undertake unilateral action. Such actions may further increase tensions in the
international system since they would weaken the restraining international
regime centred on the United Nations that has been in place since 1945. A very
undesirable future is one in which there may be a larger need for international
interventions in the peacekeeping–peace enforcement spectrum, combined with
tasks of a ‘state-formation’ character but with multilateral efforts hampered by a
climate of distrust and mutual suspicion on the part of the greater powers of the
international system. Therefore, this report stresses that the interconnectedness
between many different aspects of the politics of climate change must be brought
into considerations. Actions, or a lack of action, in one area that is not directly
related to more traditional security concerns, such as mitigation, may have
knock-on effects on areas that are related to very concrete security concerns,
such as international crisis management.
Another problem concerns not so much adaptation as it does mitigation. Unless
and until effective substitutes for fossil fuels have been developed, countries may
be unwilling to reduce their use of fossil fuels for energy generation and as
propellants out of security interests. Cutting down on carbon emissions and on
carbon based fuels both for military and civilian purposes may be seen as risky in
the sense that one could lose out in military terms to actors who still use fossil
fuels. Hence, being risk-averse in relation to military competition may generate a
greater degree of risk-willingness in relation to climate change effects.302 This
problem is a case of weighing the known risk, i.e. military aggression, against an
unknown one, i.e. climate change. This kind of thinking, particularly if major
players strengthen each others perceptions that making the transition from fossil
fuels to other sources of energy could render them vulnerable, at least in a
302
Rasmussen 2006:40
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transitional phase, could severely impair mitigation efforts.303 However, the truth
of the matter is that this kind of reasoning has a definite sell-by date since the
supplies of fossil fuels are probably waning. Furthermore, because it involves
weighing two risks against each other, the process of risk-taking is double-edged.
A country prepared to accept the risks of adapting to a less-fossil intensive
energy profile, through efficiency measures as well as through innovation, will
avoid the risks that neglecting such evolutionary steps entail. In Rasmussen’s apt
phrase: ‘if you are prepared to accept risks that your competitors are not, then
you will forge ahead as they stop at the brink while you take the leap304.’ It
should of course be born in mind that willingness to accept risk by innovating
might be perceived as a threat by others less inclined.
303
Hence, the classic deadlock of international politics known as the ‘security dilemma’ comes into
play in relation to mitigation of and adaptation to climate change. For a description see Jervis
1976 chapter 3 esp. 62-67 See also Holsti 1996:9
304
Rasmussen 2006:40
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5 Conclusions
This section contains the conclusions and policy recommendation that can be
drawn from the report begins by recapitulating some of the methodological
structure of the report. Firstly, the report only deals with developments until the
year 2050 and can only briefly and summarily extrapolate what might happen,
ceteris paribus – with all the problems it brings –, towards the end of this
century, when climate scenarios begin to predict more dramatic consequences. A
second main methodological feature of the report is that it operates with a
traditional concept of security. This perspective entails focusing on inter-state
relations as well as on the role of the state as a mediator and shaper of social
processes. This is a factor that marks this report out in relation to other reports,
such as those of the WBGU, which operate with a much broader definition of
security (human security).
One must carefully distinguish between different kinds and degrees of climate
change when assessing the various consequences for international politics and
international security. In this report the choice was made to focus on a ‘mediumrange’ scenario, corresponding roughly to the A2 scenario of the IPCC, which
means that it is assumed that climate change will occur but not to the extent as in
the ‘worst case scenario’, i.e. A1FI. Before dealing with the conclusions from the
bulk of the report some possible consequences of unmitigated climate change are
briefly discussed.
Unmitigated climate change may create potentially unmanageable economic,
political and social conditions in the latter 21st century. Beyond that, conditions
for stable international and domestic politics may become substantially damaged.
We want to stress that unmitigated climate change will bring considerably worse
consequences than those dealt with in this report, particularly in the long run, by
which we mean beyond 2050. With larger increases in global mean temperatures
as well as regional temperatures and higher levels of sea level rise the effects of
climate change will get worse. These effects include more severe droughts and
floods, stronger shifts in precipitation, greater intensity of frequency of extreme
weather events even higher temperatures with potentially grievous effects on
ecosystems, crops, fisheries and thereby food security. Beyond 2050 and
particularly beyond 2100, the consequences of embarking on such a trajectory
would be far more grievous and potentially harder to manage that the ones
covered in this report. Because of the long time-perspective as well as the very
extreme nature of the long-term changes of unmitigated climate change, the exact
consequences are difficult to estimate. Global sea level rises of one metre or
more have never previously been encountered by mankind. If carbon emissions
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and thus climate change proceed unmitigated for a good part of the 21st century,
we may see very radical changes in the 22nd, such as the beginning melting of the
Greenland ice cap, which could raise sea levels a number of metres world-wide.
The longer climate change proceeds unmitigated, the larger the risk of unleashing
so-called independent drivers or non-linear effects. One such driver is the largescale thawing of Siberian permafrost, releasing enormous quantities of methane,
an even more powerful greenhouse gas than carbon dioxide, into the atmosphere
which would speed up and reinforce climate change. No one can foresee the
social, economic or political consequences of such a development but the age
experiencing it would likely to be one of considerable global turmoil.
Furthermore, phenomena such as this have never been encountered polities
engaged in international, even global, politics, which are in the business of
estimating, calculating, managing and pre-empting security challenges. The
introduction of strong climate change – a complex and threatening issue – into a
world of such complexity may give rise to security dynamics that could be very
hard to contain within the current, relatively stable, international system.
If however, a large part of the world’s coastlines where the majority of the
world’s population lives and most cities are located should slowly but surely risk
flooding (which 6+ metres of sea level rise would entail), then the societies and
states of the world would be exposed to financial and social pressures that they
may not be able to handle without breaking down. Inland areas might face
pressures from state actors that seek to secure and (re)develop territories, from
ordinary people seeking refuge from storm surges and from displacement of
people due to economic strain.
Furthermore, the Stern-report has calculated that the economic consequences of
unmitigated climate change could be as large as those of the two World Wars and
the great depression of the 1930s entailed. Under such circumstances the
international system as well as individual states would face large strain, which in
turn might move the international political climate in a more conflict-prone
direction. Worse still, such a development could impair the possibilities of
developing and implementing technologies that could ensure a transition from
fossil fuels and adaptation to climate change. In other words, powerful climate
changes may undermine our capacity for technological development in the long
run.
This report also raises the point that the unprecedented nature of climate change
as strong as the worst-case scenarios developed by the IPCC constitutes a risk in
itself. Embarking on a course that propels mankind radically beyond historical
experience – particularly with a hitherto unprecedented speed, two or three
human generations – may place us in a situation where neither history nor
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security analysis, two key assets in determining policies for stability, can be of
avail can be quite dangerous indeed.
Should climate change develop strongly and rapidly, the international system
itself could be placed under highly problematic strains and tension.305 They could
derive from the numerous political issues associated with global mitigation and
adaptation measures which could give rise to conflicts of interests.306 If climate
change becomes as strong as in the worst case scenarios then the number of cases
that may require international interventions and humanitarian assistance could
become too many for the current UN system too handle. Although the mainstay
of this report has not focused on the challenges to international politics posed by
mitigation and adaptation efforts, this is an area where much more analytical
work should be undertaken.
Large climate changes also constitute a greater peril to ‘human security’. In this
report we have chosen a perspective on security that stresses the primacy of
inter-state relations and the importance of the state in other social, economic and
political processes. However under certain conditions state-centred security and
human security can no longer be understood as wholly separable. Extreme
changes in climate are examples of such conditions.
One conclusion of the implications of any scenario that includes use of fossil
fuels at current or higher levels is that many of the problems envisioned under
the less severe scenarios will happen, but later and far more grievously. These
problems include the potentially destabilising effects on the oil-exporting
countries when they can no longer sustain their economies. Coupled with the
severe consequences of climate change and with the difficulties following from
continued fossil fuel dependency in a world with scarcer resources of oil, the
challenges under a scenario of moderate climate change are much less than those
under a ‘high’ one. A major challenge for politics is that the negative
consequences of the fossil-intensive scenario lie further in the future than those
of the scenarios with reduced fossil fuel use. Therefore it may be tempting today
as well as in the near future to avoid confronting problems, possibly including
conflicts, in a short-term perspective, preferring to leave them to future
generations. This would amount to avoiding the lesser evil in the short-term in
favour of the greater one in the long-term.
On the basis of this very brief survey it can be concluded that reduction of CO2
emissions and thereby of climate change are definitely called for. The
consequences for international politics and security of strategies aiming to
305
306
Cf. WBGU 2007b:231
WBGU 2007b:49
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achieve this end and secondly the consequences that even the mitigated climate
changes may bring are summarised next. When writing this report no
probabilities were assigned to different scenarios. We have kept to this rule with
one important modification, namely that this report does not include the most
radical reductions of emissions of greenhouse gasses and thereby of climate
change, i.e. those envisioned in the B1 scenario of the IPCC. This was partly
because the probability that this scenario materialises was deemed to be
unfortunately quite low and partly since the difference in the Earth’s climate
would be too slight to make a political impact. It is however worth mentioning
that the political efforts to achieve a reduction in greenhouse gas emissions
tantamount to the B1 scenario would be so large as to create reverberations in the
international political system. This would in itself be a valuably subject matter
for an international relations study.
This report argues that mitigation/adaptation measures also bring consequences
for international politics and international security. The modern sociological
literature on ‘world risk society’ emphasises that even those measures undertaken
to prevent or forestall future risks may themselves beget new and unforeseen
risks. We shall in the following summarise some of the risks that mitigation and
adaptation measures presuppose in the mid-range climate change scenario.
5.1 Security Risks of Treating Climate Change
as a Security Risk
As section 2.2. demonstrated, the question of whether changes in the (natural)
environment should be linked to security in the traditional understanding is a
long-standing controversy in the field of security studies and international
relations. The position of this report is that one should proceed with caution
when linking climate change, which is an environmental factor with potentially
degrading effects, to ‘traditional’ security. To briefly recapitulate, this report has
approached the issue of whether climate change can have consequences for the
politics of security from a perspective that defines ‘security’ as actions pertaining
to the use of organised collective violence with political (and economical) ends.
This option was chosen over a wider understanding of security, for example as
human well-being (‘human security’) or societal resilience, in order to provide a
parsimonious analysis of a subject that is rarely connected to environmental
factors.
This report concludes that militarization and securitization of climate change
may have problematic results on international relations in general as well as on
mitigation of and adaptation to climate change in particular. First, it may spark
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off a process of mutual securitizations which would raise the probabilities of
conflict.307 This, of course would be problematic in itself but it would also entail
a risk of consuming funds that could be used for mitigation and adaptation
purposes. It would draw political focus away from mitigation and adaptation
efforts as well as fostering an international climate in which co-operation around
the issue(s) of climate change would be more difficult. A securitization of
climate change could also lead to a greater concern with and focus on securing
energy sources in order to safeguard the national economy as well as the fuel
needs of the armed forces. A worsened security climate in which security is
increasingly seen as divisible could also entail, logically, a perspective in which
the world economy is seen as a zero-sum game becoming dominant among the
world’s decision-makers. As noted in section 4.8. above such a future could
entail that reducing consumption of fossil fuel, a key aspect of mitigation
policies, being regarded as a risk for national security reasons.
If climate change only proceeds to moderate levels, however, the effects can still
pose large challenges to domestic and international politics, but these are
potentially manageable and do not automatically lead to (armed) conflicts. This
report argues that climate change alone is unlikely to lead to conflict although it
can exacerbate existing tensions or be used as a tool for mobilisation by political
leaders interested in furthering their own ends. Thus, the report concurs with the
argument of the Stern Review which argues that the risk of conflict in connection
with climate change is far greater in countries with a record of conflict and poor
governance. 308
In itself, the climate is not a threat, it is a condition. Instead, the consequences of
climate change are conditioned by the institutional, social, economic, political
and historical context of the societies facing them. Whether climate change will
be a causal factor in increasing the risk of conflict depends on existing patterns of
intra- and inter-state politics as much as it does on the effects of climate change.
This conclusion was enabled by the systems-theoretical argument presented in
Section 1.3, which outlined the distinction between natural and social systems.
One of these important factors is the extent to which political leaders of a
particular region stand to gain by exploiting climate change to further their own
ends.
307
‘Securitization’ denotes the process whereby a political issue achieves widespread acceptance as
a security issue which allows it to be treated differently than would otherwise be the case.
Securitisation is also the first step in a process whose final phase is the use of military violence.
Cf. Buzan, Wæver & de Wilde 1998
308
Stern Review Report 2007b:112
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Section 2.5, ‘Paths to violent conflict under conditions of climate change’
outlines ways in which this could take place. The first path was that political
actors could exploit climate change induced strains, for example migrants, to
gain or retain power in an internal power struggle. In such a scenario the security
of groups that oppose the regime or that are used as scapegoats, e.g. migrants, is
at risk. The second path concerns states in regions with predominantly
adversarial security relations. In such a region under conditions of strong climate
change, a country weakened by climate change may be under threat from
neighbours seeking to exploit the situation for material or political gains through
military means. The third path was that states may go to war in order to secure
resources for their economies and populations. In order to materialise, a number
of structural changes would have to occur. The most important is that the world
economy would have to become ‘renationalised’ and the state, once again, would
assume the role of its armed protector and supplier. Another is that the
restraining function that nuclear weapons have played in the post-1945 era would
cease to be effective. The fourth path deals with what we have chosen to call
‘subsistence conflicts’, namely conflict where groups that very close to the
means of their subsistence (e.g. farming, pastoralism) and possess the means of
violence, or even informal or formal authority to use them, may come into
conflict over scarce resources of land or water. The main feature of these
situations is the absence of a modern interventionist state and well-functioning
market mechanisms. There are a number of areas in the world today where these
conditions are at hand. In the future, climate change may induce strains on
several areas that would cause the deterioration of both state and market
mechanisms and hence increase the number of contexts where subsistence
conflicts may materialise.
5.2 Decreased Interaction Capacity
Section 2.5 argues that climate change might reduce state (inter)action capacities
due to the strain it might place on the economy, society, agriculture etc. through
its multiple effects. Although this is at the core of why climate change is a
(political) problem it has two widely diverging effects. As the sociologist
Gianfranco Poggi has recently reminded us, power is fundamentally ambiguous,
capable of being used for good and evil, to create security as well as
insecurity.309 Hence the loss of state interaction capacities may have both
beneficial and harmful effects, but the connections between these two main
outcomes are complex.
309
Poggi 2001:5
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As defined in Section 2.5 a loss of state interaction capacity means that the state
can do fewer tasks and/or perform less well in the tasks it undertakes. This can
result in a weakening of the state's capacity as a provider of internal security but
the reduction in coercive powers that can be projected internally as well as
externally means that it is less of a threat to other states in material terms.310 In
other words, a loss in interaction capacity would mean a decrease in the
resources that a state could use, for good and evil, against its neighbours as well
as against its own population. This argument says little about whether the risk of
inter-state conflict in a region decreases or not, only that the resources (monetary,
organisational, technical etc.) do.
Historical cases could be used to support the argument that states that find their
resources dwindling and regional position slipping become more ready to resort
to warfare.311 Such examples may however be misleading in the case of future
climate change-induced stress. Firstly, cases in which declining states have
resorted to war show that the losses in power were relative to other states in the
same region. Judging by the prognoses of the IPCC, the natural effects of climate
change will affect entire regions and not individual countries. However, the
states of a region might differ with respect to the degree to which they are
prepared. Differences in how countries are prepared, economically and
institutionally, to handle the effects of climate change may therefore be important
in creating regional inter-state dynamics. Consequently, it can be very important
to take a regional, and not a country-based, perspective on foreign aid with the
aim of strengthening adaptive capacities.
Secondly, the prevalent pattern of international relations in a region and the types
of regimes or governments of the respective countries are crucial factors in
deciding the direction towards conflict or cooperation.312 In order to understand
this, one must take a balanced view of the historical record. Simply limiting
one’s point of reference to European history until 1945 provides a bad analogy to
the situation of today and the near future. Contemporary international politics
take place in a global system and inter-state international politics in many regions
are in many cases influenced by relations between the 'great powers'. This was
the prevalent modus operandi of the international system during the Cold War
and although the world is unlikely to be so decidedly influenced by the rivalry of
two – or more superpowers again it can serve as a useful reminder of how the
dynamics between different parts of the world are tied together.
310
And, lest it be forgot, sometimes to its own citizens
e.g. France in 1870 and Austria-Hungary in 1914 For a development of this argument see
Schroeder 2004:148
312
This argument is made forcefully in Holsti 1996
311
150
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Although there are some regions whose security dynamics appear to be
endogenous to a high extent, such as South Asia, there is every reason to believe
that the relations between the great powers of the future will be important,
directly or indirectly, for many parts of the world. Therefore the conditions
prevailing between the EU, the USA, China, Russia and perhaps Brazil, Japan
and India might have a great impact on determining the shape of future security
dynamics in many parts of the world, particularly Africa. When it comes to
responding to climate change-induced strains (of social and well as natural kinds)
we believe that relations prevailing the in the ‘West’, particularly in the North
Atlantic security community, will be most important since this group makes up
the major actors in foreign aid, foreign direct investment (FDI)313 and
international humanitarian interventions.314 Thus, losses in state interaction
capacity could lead to regional conflicts, but they will probably not take the form
of powerful, “Clausewitzian” organisations facing off on battlefields reminiscent
of nineteenth and twentieth century Europe, the reason being that the resources to
sustain such efforts will probably be lacking.
However, reduction in the capacity of the state to provide services, including
support to the economy, and public goods, including security-related goods,
might have other problematic consequences. The risk of instability, human
suffering, increasing crime and possibly challenges to societal cohesion may
increase. This is why climate change may bring effects that fall within the sphere
of security politics, potentially with international ramifications in the form of
peacekeeping/state-building operations. A weakened state may not be able to
respond to such problems efficiently. To do so would require a sustained and
balanced effort to calculate and economise on remaining available resources. A
precondition thereof is a well-organised and educated bureaucratic administration
and political system allowing interest representation and channelling of public
demands. Such conditions underpin not only state efficiency but also societal
stability. To gauge the width of potential problems under the strain that future
climate change might bring, one could conduct a survey of the countries in the
world and see how many meet the above criteria. Of course, few of them do and
they are located in the North while those than do not are located in the South.
A major issue of concern in the interface between climate change and security
politics is the suspicion that the strains that climate change will probably bring
313
314
This could possibly change with the emergence of China as a major player in the world economy.
It should be noted that countries such Bangladesh, India, Nepal and Pakistan are major
contributors of manpower in peacekeeping operations under the aegis of the United Nations. In
2007, the four countries contributed 33,334 personnel out of the 83,328 employed in
peacekeeping operations by the UN. See
www.un.org/Depts/dpko/dpko/contributors/2007/Apr07_02.pdf accessed 20070926
151
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could cause more states to become destabilised and possibly become ‘failed
states’. Much of the literature on ‘failed states’ focuses on states that today are
weak or where the signs are already evident that they are faltering. Naturally
working to counter ‘state fragility’ is a crucial task,315 but we argue that the focus
should not be exclusively on the weakest members of the international
community. Instead, we recommend that the political focus be directed to what
we call ‘pivotal’ states, a classical geopolitical phrase to denote a state whose
regional importance is of such magnitude that developments in it will have
reverberations across the region. There are two reasons why more support and
attention in the form of ‘early warning’ observation should be given to relatively
strong countries: While (relatively) strong and stable, they could be very
important in supporting economically, politically and – if need be – militarily, an
entire region beset by climate-change induced problems. If they are weakened,
not only does this positive and preventive influence fall away, but the decline,
destabilisation or, in the worst case, demise of a regional anchor has a greater
potential for destabilising an entire region. Furthermore, an international
intervention with the intention of remedying the situation in a large, populous
and (formerly) resource-rich country is immensely more difficult than
intervening in small and relatively resource-poor countries. Potential ‘pivots’ in
this sense include Egypt, Kenya, Nigeria and South Africa.
There are several factors that introduce a large measure of uncertainty in the
analyses concerning the consequences that climate change might have for
international politics. The primary source of uncertainty concerns what climate
change and mitigation/adaptation measures will mean to the world economy. A
serious economic downturn may threaten state stability, disrupt international
relations and possibly prompt a return of the state in economic matters. The latter
could entail an increased tendency towards neo-mercantilism and protectionism,
the long-term results of which could be the securitisation of international
economic relations. Historically, stability in South-east Asia and in the Middle
East can be directly connected to the state of the economy of the region. A
second source of uncertainty concerns the independent drivers of climate change,
such as the release of methane from melting permafrost or the collapse of the
Amazonian rainforest. A third source is the interactive, dynamic and non-linear
nature of the politics of security. It is vastly difficult to forecast what form
security relations will have in the different regions of the world, as well as on a
global level over a period of the coming forty years, with or without the complex
of issues that climate change entails.
315
WBGU 2007b:43-48
152
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Some benefits of a low-level scenario n which a successful transition away from
fossil fuels is underway are obvious, most importantly less severe effects of
climate change in the near and distant future, thus minimising this source of
instability and thus avoiding worsening of the conditions of international politics.
This scenario also lessens the serious effects of fossil fuel dependency. Such
effects include the possibility of ‘resource wars’ and of negative impacts on
economies and societies across the world once the more readily available
supplies of fossil fuels run out. To conclude, the risks associated with climate
change are considerable, but they are primarily socio-political in character rather
than climatic.
Recommendations for Policy
A great challenge concerning the impact of climate change on international
politics is to construct a wide consensus that understands the negative effects of
climate change as an issue of common and ‘indivisible’ security. Emanuel Adler
defines the concept of indivisible security as an understanding that ‘one state's
security is indivisible from that of other states’.316 This understanding differs
from ‘divisible’ security which is more akin to a zero-sum game in which one
state's gain in security equals another's loss. Such a condition does not have to be
an accurate reflection of reality. Instead, when international politics operate
under tense and conflictual conditions, politicians tend to perceive a neighbour's
strengthening of his security as a potential threat.317
Primary threats to ecosystems and societies induced by climate change are what
this report calls the natural effects of climate change, e.g. sea level rise, droughts,
floods, extreme weather events and increased temperatures. In contrast,
secondary threats in connection with climate change are man-made: political
disorder due to collapsing states, conflicts due to opportunistic regimes or
worsening inter-state relations due to fearful leaders. Threats in this latter
category are more likely to materialise if natural phenomena not understood as
common threats under a paradigm of indivisible security. Collapsing states are
more likely if proactive and preventive measures are not taken and the
emergence of inter-state rivalries on regional and global levels are made more
likely by a general understanding of security as divisible. An example, as argued
316
Adler 1998:119 Notions or discourses of indivisible security can exist between sovereign states
without necessarily forming a ‘security community’ (Adler 1998:122), a tighter association
characterised by a common 'we-feeling'.
317
For an analysis of how cooperative and conflictual paradigms of security politics have operated
historically see, Little 1989
153
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above, would be if adaptation measures in one country were seen as potential
threats to neighbouring countries.
Consequently, the way to counteract such developments would be to build an
understanding of security as indivisible. Traditionally, discourses of military
security have been based on notions of divisible security whereas environmental
discourses have been much easier to formulate in the form of indivisible security.
To use a familiar phrase, ‘pollution knows no borders’ whereas military security
presupposes borders or in any case boundaries. Therefore, as others have argued
in relation to environmental security318 securitisations with military overtones
may undermine the ambition to build an understanding of indivisible security in
which climate change would be seen as an equal threat to all states of the world.
For an increased understanding of the connections between the aim of indivisible
security and the means that enable it, it is worthwhile looking at the region where
states have managed to build a security community with indivisible security as an
important component, namely the EU. An important aspect of building an
understanding of security as indivisible was to ‘desecuritise’ relations between
the states of Europe. This was done principally by cooperating closely in areas
other than security, although all participants were strongly aware that this was
being done in order to promote common security.319 We are in no way claiming
that reproducing EU-like structures all over the world would be a solution to the
security problems that climate change potentially entails, not least since certain
important factors in its formation are not possible to re-create.320 The lesson to be
learned in relation to common and indivisible security lies rather on another
level. It can be highly effective to work towards a common aim through areas
where the core problem is not directly addressed and thereby activated but
nevertheless attended to. In the case of climate change joint collaboration
between regional and global powers on foreign aid to the most vulnerable
countries could be an example. Yet another is to engage the many and powerful
financial institutions, such as the IMF, the World Bank, the African Development
Bank etc. in comprehensive schemes to build adaptive capacities in highly
exposed states.321
318
For example Deudney 1991, Matthew 1999
See Milward 1992:320-333, 337
320
The most important of which was the role that the hegemony exercised by the United States
played in allaying traditional security relations in Europe. Buzan 1991:219-221 and also 202-205,
207-209, 215 & 218
321
International funding mechanisms have been agreed upon by the parties during COP (Conference
of the Parties)-7, the LDC Fund (the LDCF), the Special Climate Change Fund (SCCF) and the
Adaptation Fund. Scientific Expert Group on Climate Change (SEG), 2007:94-95. It should also
be noted that the World Bank is already highly active in relation to fighting climate change. See
319
154
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This line of thinking must be applied to strategies of adaptation and mitigation
alike if these are to foster international stability. As argued above, security
dynamics in relation to adaptation measures are not the unique concerns of
developing countries, but could also developed among countries in the North
unless such measures are met in tandem. An important aspect of a strategy for
international stability in the face of climate change is to plan mitigation measures
from the perspective of indivisible security. One key factor in this respect is to
devise strategies to ensure the sustained stability of the Middle East and other
OPEC-countries during a transition away from a world economy dependent on
fossil fuels for energy. If one aims at creating conditions of indivisible security in
a wider area, a one-sided emphasis on the ‘energy security’ of consumers in the
North must be avoided in the politics of mitigation. The producers of fossil fuels
must also be protected from the destabilisation which changes on the demand
side could create. It would be highly problematic if a situation were to occur
where states and organisations in the oil-producing part of the world were able to
blame the North for ruining their economies, and by extension, societies.
Consequently, a comprehensive view of a common security must take economic,
societal aspects and ecological aspects into account.
5.3 The Current Window of Opportunity
A final word that relates to the fundamental purpose of this report is in order.
Seeking to understand something is also involves taking part in the shaping of
the discourse on that particular phenomenon. In relation to political phenomena
and concepts this activity entails taking part in a process that relates to political
action in connection with that particular phenomenon. Therefore, it is appropriate
to conclude this section with some reflections on how discourses are established
and the consequences of establishing a dominant discourse on a political
phenomenon namely how climate change how should be understood in relation
to vulnerability and security.
Making Sustainable Commitments – An Environment Strategy for the World Bank 2001 Annex F
pp.173-180 from
http://siteresources.worldbank.org/INTCC/Miscellaneous/20733920/EnvStrategyAnnexF2001.pdf
access 20070924 For a list of climate-change related projects financed by the World Bank see
http://web.worldbank.org/external/projects/main?pagePK=217672&piPK=95916&theSitePK=40
941&menuPK=64140078&category=THEME&goalid=81 access 20070924
155
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Throughout, this report stresses the importance of social and political structures,
if not for determining actions then for setting the scope of possible actions. Ways
of thinking, talking and acting about a certain issue solidify over time and turn
into structures that both restrain and enable action. Although most concepts in
politics are ‘essentially contested’ the terms of debate can in fact become very
rigid with time and in some cases simply become a natural way of talking,
thinking and acting in relation to a certain political issue. Although the scientific
community has debated climate change for some time now, it is only recently
that the issue has entered the political mainstream and reached its current, highly
exposed status. This means that the international community now faces a window
of opportunity for framing the issue of climate change. In a couple of year’s time,
mitigation/adaptation issues of climate change will have found their dominant
interpretation. This means that it is urgent to find a way that establish a discourse
in which climate is understood as a common responsibility and as an object of
indivisible security. Failing to do so now when the time is ripe might result in a
discourse in which handling and responding to climate change is seen as the
responsibility of individual states and a factor in divisible, and thereby zero-sum,
security.
That said, although the present could in retrospect, prove to be a formative period
for international politics on climate change, it must be stressed that formative
moments do not last forever but discourses are subject to revision over time.
Future political developments, which could be unrelated to changes in the earth's
climate itself, may come to change the discourse on climate change as a common
responsibility and common vulnerability. Future events may create new windows
of opportunity to change the way we think, talk and act about climate change.
Although such processes are complex and lie in the future, we need to be aware
of them since our engagement with climate change will doubtlessly be very longterm. Therefore continuous efforts must be made to establish and maintain
climate change as a venture demanding international cooperation, not least
because of the security political ramifications it otherwise could bring.
156
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